十五大以後中國大陸省級機構改革之研究--以江蘇省為例

The Provincial Government Institutional Reform in Mainland China after the 15th NCCPC：A Case Study of Jiangsu Province

宋紀均(Ji-Jun Sung)

指導教授 ： 蔡政文 ； 周繼祥

國立臺灣大學/社會科學院/國家發展研究所/博士(2009年)

https://doi.org/10.6342/NTU.2009.10426

摘要

十五大以後中國大陸省級機構改革之研究—以江蘇省機構改革為例
中文摘要
自1978年中共11屆三中全會至今，改革開放已逾卅年，中國大陸面臨急遽的社會政經轉型，中央與地方政府的機構改革也隨著政經環境的轉變而不斷推進。尤其是面對如此重大的轉型，改革就像處於十字路口，各級地方政府莫不戒慎恐懼，深怕稍有差池便跌落萬丈深淵。因此，如何因應改革，對地方政府而言是事關全局的重大問題。
中國大陸被視為是一個正在崛起的大國，江蘇省則是這個國家的一個先行省分，本文的研究以江蘇省為主要對象，正是基於其經濟發展和地方政府機構改革在中國大陸所處的關鍵地位。
筆者於研究所時期開始接觸中國大陸研究的領域，關注中國大陸在改革開放後的各項政經社轉型發展，特別注意經濟體制改革與行政管理體制發展的互動關係以及中央與地方關係的轉變。中國大陸在1997年十五大以後，從中央到地方開始一系列的機構改革便成為筆者關注的焦點。
一般學者大都是將研究的焦點放在國務院的機構改革，反而忽略了地方政府在改革過程中的作用及其運作，事實上地方政府直接面對基層群眾，其作為對民眾的影響更是深遠。此外，地方政府對於機構改革的態度及其確立的行政改革目標，相對於中央政府而言更為複雜。因為，處於承上啟下關鍵地位的地方政府既要面對中央政府或上級政府，又要面對下級或基層政府的雙重關係，所以地方政府的改革目標從整體角度來看，都要比中央政府複雜得許多。因此，研究省級機構改革可更為全面地掌握「機構改革」概念體系的實踐狀況。相對於國務院機構改革，省級政府機構改革的範圍更大、所牽涉人員更多、單位更廣，因此，難度也更大，研究省級機構改革，有其一定的意義。以省級機構改革作為基礎，或是分析單位（unit of analysis）來驗證「機構改革」的體系、概念的實際運作，有其一定的意義。
本文首先對中國大陸省級政府的發展沿革及東、西方關於政府機構改革的理論進行梳理、總結，然後著重探討十五大後中國大陸的省級機構改革，並以江蘇省政府機構改革為實證研究對象，並據此研究成果進一步檢證社會主義市場經濟體制下新型態的中央與地方關係。
本文回顧中國大陸建政以來的歷次改革，其中改革幅度最大、成效最顯著的是98政府機構改革，在此次改革中，提出政企分開以及精簡機構與人員的目標，而轉變政府職能為其重點。本文對國務院與省級機構改革的背景、內容及效果進行分析，然後通過對江蘇省政府機構改革的實證研究，深入探討省級政府改革在實際執行過程中會遇到的具體問題及相應對策。
經由本論文研究發現，中共建政伊始，重點對國務院進行改革，沒有深入到對省級地方政府機構進行改革。93改革雖有涉及到省級政府機構改革，但成效不大。98改革，中央加大對省級政府機構改革的力度，專門制定針對地方政府機構改革的指導意見。地方政府改革過程中，因地制宜，以轉變政府職能為重心，基本實現改革的既定目標。經過對江蘇省政府機構改革的研究，並深入研究蘇南、蘇北地區的機構改革，發現蘇南模式的成功，關鍵在於政府轉變職能，做到政企分開、政事分開、政府對市場不過分干預，使蘇南的鄉鎮企業充滿活力。而蘇北地區由於歷史、地理、人文等因素的影響，經濟水準低，需要政府加強宏觀調控，調動整個江蘇的力量帶動蘇北經濟增長。
而且，本文在第五章將同時期的江蘇省政府機構改革與我國台灣省政府「精省工程」作一對比，發現我國在此時期所推動的「精省工程」將省政府組織「虛級化」，有其自身特殊政經社環境背景的需要，同樣的江蘇省的省級政府機構改革，為因應社會主義市場經濟體制的發展，強化省政府宏觀調控的職能，也是為了回應自身的改革需求。兩地都因為個別獨有的特殊因素而採取了迥然不同的策略選擇，一要政府職能「虛級化」、一要「強化」宏觀調控的政府職能，這完全是取決於改革者所處的客觀場域所決定的。
研究發現，98年機構改革雖然取得較大成果，但為配合社會主義市場經濟的進一步深化，行政管理體制、政府機構也必須進一步深化改革。因此，本文論述十五大後政府機構改革的新趨勢，分別是03年十六大後的加強監管體制與08年十七大後的「大部制改革」。
總體而言，中國大陸的機構改革在改革前期，理論準備較不充分、太主觀、隨意性太大，全靠領導人自己思考。而前期的地方政府機構改革則未能充分體現地方特色。
與西方公共行政改革相比，中國的機構改革也具有啟發意義，因為改革的根源是在「計畫經濟」轉變成「市場經濟」，是一種體制轉換，改革的動力來自於「體制改革」、「體制轉換」，根源是在「職能轉變」，這與西方各國的改革基礎不一樣，彼此的改革動力有也不同。

關鍵字

省級機構改革 ； 行政體制改革 ； 職能轉變

並列摘要

The provincial government institutional reform in Mainland China – a case study of Jiangsu province
Abstract
It has been thirty years since the policy of reform and opening-up initiated in the Third Plenary Session of the 11th Central Committee in 1978. The Mainland China is facing a rapid political and economic transformation of society. At the same time, the central and local government institutional reforms are also evolving with the constantly-changing political and economic contexts. Local governments at all levels tackle reform-related issues cautiously for fear that they might fall into an abyss if the reform should fail. Therefore, how to deal with the reform is tremendously grave for the local government.
Jiangsu, where the government reform was first carried out, is an advanced province in Mainland China regarded as a rising power in the world. In this paper, Jiangsu Province was used as the target sample, for its key position in economic development and reform of local government in Mainland China.
I have been in the field of the Mainland China studies since I worked in the graduate school. I take interest in the economic transition, social development in Mainland China after its opening-up reform, especially in the economic system and administrative system, as well as the development of interaction between central and local relationship. The foci of this paper are on the institutional reforms from the central government to the local government, especially the provincial government institutional reform, after the 15th National Congress of Communist Party of China in 1997.
Most of the scholars only paid attention to the institutional reform of the State Council, but they ignored the local government and its operation in the reform process. In fact, local governments face the grass-roots directly, and its impact on the population is far-reaching, because the local governments need to connect with both the central government and the grass-roots. Therefore, the study of the reform of provincial-level institutional reform is the key of the government reform from an overall perspective. Compared with the central government, the scope of the institutional reform at the local government level is more comprehensive, Therefore, to use the provincial-level institutional reform as the unit of analysis has its own significance.
First, this article summarized the theory of the government institutions reform carried out in provincial government reform in Mainland China and East and West government. Then the institutional reform in Mainland China after the 15th NCCPC was examined, and we used the institutional reform in Jiangsu province as the object of empirical study. The research results were employed to examine the relationship between central and local governments under the socialist market economic system.
This paper reviews the government reforms since the People’s Republic of China was founded. The most major government reform was carried out in 1998. In this reform, the reform target of separation of government from enterprises, streamlining of agencies personnel and transformation of the functions of government organs was established, and transformation of the functions of government institutions is the key point. In this paper, the background, content and effects of institutional reform of the State Council and provincial government were analyzed, and then through the study of institutional reform in Jiangsu province, problems generated in the process of reform and the way to solve them could be discussed.
In this paper, we found that in the beginning of the Mainland China government established, the government reform was focused on the State Council, rather provincial-level local government. Although the reform of provincial government was mentioned in 1993, the result was not wonderful. In the government reform in 1998, the central government increased the intensity of reform to the provincial-level government agencies, specifically constituted guidance to lead the reform of local government. During the process of government reform, Local government take the transformation of the functions of government organs as the main target, and the reform objectives were basically came true at last. We studied the institutional reform in Jiangsu province, and deeply studied the reform process in southern Jiangsu and northern Jiangsu area, then we found that the success of southern Jiangsu model can be attribute to the changing functions of local government, and ensure to separate the enterprise from the conduct of public affairs, separate the Government from the market. However, the northern Jiangsu area is still standing in a low economic level due to historical, geographical, cultural and other factors, and required the Government to strengthen macro-control, to mobilize forces to bring the entire Jiangsu economic to grow quickly.
Moreover, this article compared Jiangsu provincial government institutional reform with Taiwan province reform in the same period, which was called "downsizing province" in our country in chapter V. And we found that in our country, the government were promoting the the provincial government organization "virtual class " in this period, and has its own special political and social necessary background. With the same reason, the institutional reform of Jiangsu Province is response to the socialist market economic system development, strengthen macro-control functions of the provincial government in order to respond to its own reform demand. The two different area used different reform policy because of their unique local factors: Our country promote to the functions of the government "virtual class" and Jiangsu promote to "strengthen" macro-control functions of the government.
This study found that although institutional reform in 1998 had achieved great results, the administrative system, government agencies also need to further deepen the reform. Therefore, this paper studied the new trend of government institutions reform after the 15th NCCPC, including the reform in 2003 to strengthen the regulatory system and reform in 2008 after 17th NCCPC to carry out the Reform of Super-Ministry System.
Overall, in the early stage of China's institutional reform, the theory is inadequate, and too subjective, too arbitrary, depend on the leaders of their own thinking. The pre-reform of local government bodies are not able to fully embody the characteristics of themselves.
Compared with the Western public structural reform, China's institutional reform is also instructive, because the root of the reform are reform the government structural from "planned economy" to a "market economy", the drive for reform comes from the " structural reform", " structural transformation", the root are in the " transformation of the functions of government organs ", which are different from the reform basic of Western countries.

並列關鍵字

provincial institutional reform ； government structural reform ； transformation of the functions of government organs

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