中國大陸地方政府機構改革中的規模精簡問題（1988∼2004）：財政支出之分析途徑

Downsizing Local Government as an Organizational Reform in the People’s Republic of China, 1988~2004: An Approach Based on Fiscal Expenditure

高誼(Yi Kao)

指導教授 ： 徐斯勤

國立臺灣大學/社會科學院/政治學研究所/碩士(2007年)

https://doi.org/10.6342/NTU.2007.03311

摘要

中國大陸改革開放以來，地方政府機構改革的主要問題之一，在於「規模精簡」過程中的人員縮減、人員分流問題。由於部份地方政府組織臃腫、冗員充斥，導致財政負擔過大，成為各地政府在機構改革中共同面對的問題。然而，由於各種因素，使得人員分流所欲達成之效果與型態，在不同的階段之間以及在各地之間，出現差異。本論文擬就1988∼2004年間，中國大陸機構改革中，地方政府財政預算當中，有關人事支出──以行政管理費與公檢法支出來測量──的部份進行分析。本研究採取「財政支出」之途徑，亦即經由財政支出中人事支出比重的變化所呈現的現象，以文獻分析法與敘述統計法，試圖來描述並解析機構改革中出現的「精簡—膨脹—再精簡—再膨脹」之「縮脹循環」問題，其究竟表現出何種樣貌？其實際內涵又為何？並且，經由比較經濟「發達省份」與「滯後省份」在規模精簡的「時間」與「空間」分佈邏輯上，出現何種成效與型態上的相同性與差異性，來探索機構改革中的「縮脹循環」，與宏觀經濟變化、地方經濟發展、中央機改政策的制約程度等影響因素之間的關係。

關鍵字

政府機構改革 ； 規模精簡 ； 怪圈 ； 縮脹循環 ； 財政支出

並列摘要

From 1988 to 2004, local governments in the People’s Republic of China (PRC) underwent three rounds of organizational reform, launched in 1988, 1993 and 1998 respectively. They were aimed at tackling an array of problems, among which the downsizing of scale through reduction in personnel was of prime importance. The oversized local governments that resulted in staggering fiscal burden was a common concern for all local governments. Despite this commonality, the result and pattern (e.g., the contraction-expansion cycle in the scale of government) of local governments’ organization reform through downsizing manifested immense divergences due to various reasons. Such differences can be found among different rounds of the reform and among localities. This research attempts to explore and analyze the similarities and differences mentioned above, by examining the fiscal spending on personnel-related categories---the items of administration and management expenditure (行政管理費) and of public security/procuratorial/judiciary expenditure (公檢法支出) of provincial governments during 1988 through 2004. In scrutinizing such figures, the methodology is based on descriptive statistics and literature analysis. Sample provinces are selected and divided into economically advanced and backward groups, to highlight how the effect of local economic growth in combination with macroeconomic condition and the coerciveness of central government’s policy brought about diverse patterns of government organization reform in terms of temporal and spatial domains.

並列關鍵字

government reform ； fiscal expenditure ； deflation-inflation cycle

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