大城市中心城区政府改革研究主体职能的适应性调整

中文摘要I中文摘要随着中国现代化水平的提升、整体改革的深入，特别是城市化进程的加快，进一步转变政府职能，推进科学发展，越来越成为一个必然选择和重大课题。在这一发展转型过程中，作为中国各直辖市和设区市的政治、经济、文化等各种重要资源、要素聚集的行政区域，中心城区的地位和作用正在发生深刻的变化，所面临的发展与建设难题也越来越多，政情和社情也越发复杂。新中国成立以来，受多重因素影响而形成的职责同构的全能型政府体系具有一定的历史合理性，但也形成了以行政区划为单位的相对固化的路径依赖，对城市整体发展造成了不小的影响。对于中心城区政府而言，随之产生了层级设置下的身份之困、职责体系下的全能之困以及发展压力下的竞争之困等突出问题。近年来，包括北京市在内的若干大城市中心城区合并、重组，就是上述情况的集中反映，而中心城区政府主体职能定位有误，则是导致这些问题的重要因素之一。因此，要破解这些难题，就需要借鉴先进治理理念，认真研究中心城区政府建设的基本规律和改革路径。推进中心城区政府改革，需要明确市域内不同类型的行政区划均有其自身突出的功能，并与本行政区政府的职能形成一定的耦合关系。同时，在市场经济条件下，经济功能区、行政管理区和生活服务区将不再完全以同一行政区划边界进行划分，特别是发展资源和要素受市场配置后，将对城市中心区产生整体的辐射、影响和带动作用。中心城区政府改革，路径在于重构中心城区治理结构。在坚持顶层设计优先、收权放权相统一和分阶段推进的原则基础上，打破市、区两级政府“职责同构”，重新规范政府内部以及政府与市场、社会等其他方面的权、责、利关系，形成有利于加快科学发展的制度框架和治理流程。中心城区政府改革，切入点在于区政府主体职能的适应性调整。适应市场经济发展的需要，通过职能层级差异化设置，将促进经济发展的相关职能主要交给市政府，而将区政府调整为社会管理主体，在辖区内实施更加有效的社会管理，提供更加优质的公共服务。相应的，中心城区行政区划调整必须坚持适度原则，通过建立健全政府间合作机制、调整充实区政府财政渠道等手段，保中文摘要II障城市发展的整体性，满足社会管理和公共服务的需要。中心城区政府改革，必须更加高度重视运用法治思维和法治方式，以更加健全的法律体系作为依据、规范和保障，建设法治型、服务型政府。同时，还应立足于城市社会特点，积极主动整合各种社会资源，规范和引导各种社会力量共同推进中心城区社会建设。关键词：中心城区政府改革主体职能社会管理治理结构AbstractIIIAbstractWiththeupgradingofChina'smodernizationanddeepeningoftheoverallreform,especiallytheacceleratingprocessofurbanization,itisimperativetofurthertransformgovernmentresponsibilities,andpromotescientificdevelopment,whichhasbecomeamajorissue.Intheprocessoftransformation,poolingresourcesinpolitics,economyandcultureetc.invariousmetropolisesdirectlyundertheCentralGovernmentanddivisionallyintosomedistricts,theurbandistrictisundergoingprofoundchangesinitsstatusandrole,resultinginmoreandmoreproblemsinitsdevelopmentaswellaspoliticalandsocialcomplexities.Since1949,multiplefactorshavebroughtforthomnipotentgovernmentscharacterizedbyresponsibilityisomorphism.Despitetheirhistoricalrationality,thegovernmentsgaverisetopathdependenceandinflexibilityinadministrativedivision,makingaconsiderableimpactonmetropolisdevelopment.Conspicuousproblemscanbefoundinidentityundertheadministrativesystem,inomnipotenceunderthesystemofresponsibility,andincompetitionunderthepressureofdevelopment.Overthepastfewyears,alltheabove-mentionedproblemsareevidentinthemergerandreorganizationofurbandistrictsofBeijingandothermetropolises.Inappropriateorientationofthemainresponsibilityoftheurbandistrictgovernmentisoneoftheimportantelementsthatleadtotheseproblems.Therefore,tofixthem,effortsshouldbemadetolearnadvancedgovernanceideologyaswellasthebasicprinciplesinbuildinggovernmentsofurbandistrictsandreformpaths.Inpromotingthereformofurbandistrictgovernment,itisneededtoclarifytheprominentfunctionsofdifferenttypesofadministrativedivisionsandformcouplingrelationwiththelocalgovernmentinitsresponsibilities.Meanwhile,inmarketeconomy,economic,administrativeandlivingareaswillnolongerbeentirelydividedbythesamepoliticalboundaries,especiallyafterthedevelopmentresourcesandelementsbegintobeconfiguredbythemarketwhenitwillradiateimpactandspuronthecenterofthecityasawhole.AbstractIVThepathofurbandistrictgovernmentreformisthereconstructionofthegovernancestructure.BasedontheprinciplesofprioritizingtheTop-DownDesign,balancingcentralizationanddecentralizationandimplementationbystages,itisnecessarytogetridoftheresponsibilityisomorphisminmunicipalityanddistrictgovernments,normalizethepracticeinpower,responsibilityandinterestswiththegovernmentandbetweengovernmentandmarketaswellassociety,inanefforttoformaninstitutionalframeworkandgovernanceproceduresthatbenefitthescientificdevelopment.Thereformofurbandistrictgovernmentshouldstartfromadaptiveadjustmentonmainreponsibilityofthedistrictgovernments.Meetingtheneedsofthemarketeconomyandsettingdifferentresponsibilitiesindifferentgovernmentallevelswillhelpreassignadministrativeresponsibilitiesbetweenthemunicipalityanddistrictgovernments.Theformerwillberesponsibleforpromotingtheeconomicdevelopmentwhilethelattertakeschargeofsocialmanagementprovidingqualitypublicservices.Accordingly,theadjustmentonadministrativedivisionsofurbandistrictmustadheretotheprincipleofmoderation.Effortsshouldbemadetoguaranteetheintegrityofurbandevelopmentandtomeettheneedsofsocialmanagementandpublicservicesbyestablishingandstrengtheninginter-governmentalcooperationmechanismandadjustingandenrichingfiscalchannelsinthedistrictgovernments.Inthereformofurbandistrictgovernment,moreattentionmustbepaidtoapplyingtheruleoflawandthewayoflawsoastoestablishingaservice-orientedgovernmentundertheruleoflawbyamoresoundlegalsystemasthestandard,normandguarantee.Inthemeantime,basedonthecharacteristicsofurbansociety,effortsshouldbemadetointegratevarioussocialresources,andstandardizeandguidethevarioussocialforcestojointlypromotethesocialconstructionoftheurban.KeyWords:Urbandistrict,Governmentreform,Mainresponsibility,Socialmanagement,GovernanceStructure目录V目录第一章导论...........................................................................................1第一节选题背景...............................................................................................1一、问题的提出.........................................................................................................