中國大部制改革之變遷： 三次改革異同之處，2008-2018

中國在1978年改革開放後，採取的國家定位從社會主義計畫經濟改朝向社會主義市場經濟開放。計畫經濟的政府配置無法應對市場經濟下的社會需求，因此自1982年展開多次國務院機構改革。本文主要探討2008年至2018年3次國務院機構改革的內容與異同之處，大部制改革是組織機構改革與政府職能重整，在行政組織結構上實現變革。本文研究發現3次大部制改革皆是起因於改革開放後，日益開放的市場與社會開始出現各式需求，使得政府需設立相對應機構來回應。 2008年的大部制改革是以國家重點發展與引發社會問題的五大部門為主的改革，而這次的大部制改革只解決了部分的問題，集中部分業務的職能，並達成了部分組織的整併。本次改革上遭受到部門利益牴觸的抗拒，像是交通部的職能未能整併到既有的鐵道部，鐵道部仍自成一部。2013年大部制改革的重點便是將鐵路部改為國家鐵路局，併入交通部的管轄，進一步實行「政企分開」。2018年的大部制改革與前兩次著重於行政機構的體制改革有所不同，加入的黨與國務院的改革以及提高黨在憲法的地位並凌駕於國務院之上。歷次機構整合程度很難一次到位，行政改革上勢必會受到既有勢力的阻撓。政府官員為了增加自身升職機會和擴增權力範圍，從自身部門利益出發、追求行政機關規模最大化。2008年至2018年的3次大部制改革圍繞著官僚體制的國務院機構改革，嘗試透過機構裁併、人員精簡來改革臃腫的行政機關。但是受到部門利益的反對，而改革幅度與效益不高。精簡後的人員往黨和國家企業安排，未能真正解決貪污腐敗、行政效能等實質國家面臨的問題。

關鍵字

國務院機構改革；大部制改革；組織改革

並列摘要

Since 1978 when the Reform and Opening-up started, China has repositioned itself from socialist planned economy to socialist market economy. However, the structure of the government as socialist planned economy was not able to satisfy the society’s needs in socialist market economy. Therefore, since 1982 China has started multiple institutional reforms of the State Council. In this thesis, we mainly investigate the contents, similarities and differences of three institutional reforms of the State Council between 2008 and 2018. The reform of Super-Ministry System is a reform of institution and reorganization of government function, which implements changes on the structure of administrative organizations. We discovered that all three reforms of Super-Ministry System were resulted from the government’s response to the increasing needs of new institutions caused by the gradually opening-up society and market since the Reform and Opening-up. The reform of Super-Ministry System in 2008 focused on the reform of five departments that either caused social problems or the national developmental focus. Yet this reform only solved part of the problems, including centralizing certain duties and merging a number of organizations. This reform faces rebounds due to conflict of department’ interests. As a result, for instance, Ministry of Railways failed to merge with Ministry of Communications. The reform of Super-Ministry System in 2013 concentrate on degrading Ministry of Railways to National Railway Bureau, integrating it into Ministry of Communications as an approach of separating government and enterprise. The reform of Super-Ministry System in 2018 differs from the ones in 2008 and 2013. The reforms in 2008 and 2013 are mainly about reforming administration. Unlike previous reforms, the one in 2018 applied reforms on the party and the state council, and promote the party’s status in the constitution, overriding the state council. All the previous institutional integrations failed to accomplish in one take with the hindrance from existing powers. Government officials seek maximum benefit of their own departments in order to get more promotion opportunities and expand their power. Three reforms of the Super-Ministry System from 2008 to 2018 centered on the bureaucracy of the State Council, attempting to reform the bloated administrative agencies by cutting down and merging institutions and reduce staffs. Nevertheless, results did not end up as expected due to the impediment from the vested interests. People that are laid off in the reforms were often given positions in the CCP or state enterprises, which never truly solved multiple problems that the countries faces, such as corruption and low efficiency.