【作者】 孙广琦；

【导师】 钮菊生；

【作者基本信息】 苏州大学 ， 政治学理论， 2014， 博士

【摘要】 乡镇是我国宪法规定的最低一级建制的地方基层政府,乡镇不仅承担着我国新型城镇化发展、推进城乡一体化和促进社会和谐稳定的重要使命,也是农村工业化、现代化的重要基础。自古以来,我国以农耕文明而著称,与之相对应的是乡镇发育早,历史悠久。从秦汉的乡亭制开始,到隋的保甲制,以及皇权、绅权和族权的长时间稳定共存。新中国成立以后,乡村并存向乡政权制、人民公社制到乡镇政府发展,乡村组织体系经历了漫长的历史演变。改革开放以来,我国先后多次进行了乡镇机构改革,使乡镇政权不断有效地适应了时代和环境的变化。特别是进入新世纪以来,在市场经济深入发展和全球经济一体化的影响和带动下,我国乡镇的发展明显提速,并出现了分化,呈现出不同的发展水平,形成不同的乡镇类型。东部沿海地区凭借区位优势和改革发展的先机,一大批乡镇迅速壮大成为经济发达的乡镇,正在向新型小城市方向而迈出坚实的步伐,但是他们又普遍面临着职权、管理体制、机构配置和公共服务等诸多制约其可持续发展的问题和障碍。创新经济强镇行政管理体制的改革已被提上议事日程。苏南地区作为“苏南模式”的发祥地,是全国科学发展的先行区,其经济强镇的快速崛起,不仅改变了苏南城市发展的空间布局,也对苏南区域增长格局产生了深远的影响。本文选择苏州经济强镇作为研究对象,一方面可以挖掘苏南强镇扩权独创性的做法和个性的价值和成效；另一方面,可为后续的扩权强镇提供可贵的经验,对全国后发达区域乡镇治理模式的重构提供启迪和借鉴,甚至还可以对我国新型城镇化的持续推进提供新的思路和路径。经济发达镇行政管理体制改革,在理论和实践上都没有统一的模式、统一的标准、没有统一的答案,必须在探索中积累经验、研究对策、总结完善。笔者对已有的一些资料进行搜集、整理和评述,同时结合自己直接参与强镇扩权改革的实践和探索,认为强镇扩权不仅是要理顺县镇之间的权责关系,消除现有的体制性障碍,更要突出以“善治”为引领,加快推进乡镇治理体系和能力的现代化,全面提升乡镇治理成效,使乡镇政府成为人民满意的服务型、有限型、责任型和法治型政府。第一部分,导论。这部分主要探讨研究的缘起、研究的意义以及国内外相关研究现状,重点对相关概念进行界定并深度分析相关理论,从而得出文章可能的创新之处与不足。第二部分,乡镇与乡镇治理。通过历史分析法,对我国乡镇发展历程进行回顾,梳理了我国乡镇治理模式的演变,揭示了建国以来我国乡镇政权体制的发展变化以及乡镇政府的角色演变,并对我国乡镇治理中存在的问题和原因进行了剖析。第三部分,国内外乡镇治理的经验与启示。本部分通过比较研究法,在分析研究国内外地方及乡镇治理积累的一些比较成熟的经验做法的基础上,提出其对我国推进乡镇治理模式重构的借鉴与启示。第四部分,苏南乡镇的发展与治理改革的动因。苏南地区凭借良好的区位条件和工业基础,并抢抓开发开放的机遇,崛起了一大批综合实力不凡的“经济强镇”,凸现了经济总量大、人口集聚度高、城市化水平高、产业特色鲜明等特征。本部分运用PEST分析法,从政治、经济、社会、技术四个角度的因素分析来总体把握苏南经济强镇治理模式重构的宏观环境和影响因素。并对经济强镇治理模式重构的动因,从经济动力、政治动力和现实动力三大方面进行作了详细的分析,指出了传统的乡镇行政管理体制与苏南经济强镇谋求可持续发展之间形成强烈的冲突,必须要通过重构治理模式,从而拓展发展空间,激发体制活力,提高发展绩效。第五部分,苏南强镇扩权的实践探索。苏南经济强镇根据自身实际,并在国家、省和市等各级政策制度的引领下,围绕扩大管理权限、开展综合执法和便民服务、优化机构编制和人员配置、创新经济强镇的管理体制等方面作了全新的探索。第六部分,苏南强镇扩权后的成就与问题。本部分在论述苏南强镇扩权带来的正效应的基础上,重点分析其存在的若干问题和其背后的原因。苏南强镇通过扩权改革,在管理体制、组织机构等自身体系调整优化以及促进经济社会全面发展,都己取得了阶段性成效。与此同时,在放权的合法性、资源政策倾斜、政策执行、权责匹配、体制障碍等方面还存在一些不容忽视的问题。第七部分,推进我国经济强镇治理模式重构的对策与思考。论文指出,从强镇扩权向扩权强镇延伸和提升,须从思想认识的提升、制度设计的引领,要素功能的完善、权力运用的规制以及城市演进的方面等方面着手,持续推进配套改革,以战略性、整体性、系统性设计与思路,谋求改革的深化,不断释放“改革红利”。第八部分：结论。主要概括出本文的几点基本结论,并提出进一步思考的方向。更多还原

【Abstract】 As the lowest level of local grass-root government stipulated by China’s Constitution, township not only shoulders the important mission of the development of new urbanization, the boost of urban-rural integration, and the promotion of social harmony and stability, but also becomes the important foundation of rural industrialization and modernization. Since ancient times, our country is known for its farming civilization. Consequently the early developed township has very long a history. From the village kiosk in Qin and Han dynasties and the neighborhood administrative system in Sui dynasty with the prolonged coexistence of the power of emperor, squire and family, to the transformation of town coexistence into township regime and of the commune system into township government, the township organization system has experienced a long history of evolution.Since the Reform and Opening up, China has repeatedly carried out the reform of township institutions, and is more and more effectively making the township government adapt to the changing of the times and the environment. Particularly, from the Millennium on, the development of China’s township has been speeding up apparently, impacted and mobilized by the deeply development of the market economy and the integration of global economy. At the same time, associated differentiation occurs in the form of uneven development levels and various types of township. In recent years, taking advantage of the geographical superiority and the reform and development priority, a large number of villages in the eastern coastal region which have grown up into economically developed towns, are making a solid pace to the direction of becoming new small cities. But generally, they are still facing many problems and constraints in their way to sustainable development, such as the function and power, administrative system, institutional configuration and public services. The reform of the administrative system for constructing innovative economy strong township has been put on the agenda.As the birthplace of the Sunan Mode, the southern region of Jiangsu is the domestic pioneer in the scientific development. The rapid rise of the economy strong township, not only changes the space layout of the rural development, but also deeply impacts the pattern of the regional growth in South Jiangsu. Taking the economy strong township in South Jiangsu as the study object, excavation of the ingenuity of the enhancement in the region and its effectiveness is feasible, while the precious experience for future sustainable enhancement, the enlightenment and reference for the township governance reconstruction in the developing regions, and the thoughts and directions for the continuous improvement in China’s urbanization are doable.The consolidated mode, standard or answer, does not exist in the theory and practice for administrative system reform of the economy strong township, but still needs experience accumulation, countermeasure study and persistent summarization and improvement. By collecting, sorting and reviewing certain information, combined with the practice and exploration in the personal involvement in the enhancement reform, the author indicates that, to turn township government into the service-oriented, finite, responsible and law-oriented, and the satisfaction of the people, not only requires to straighten out the relationship between towns and counties and to remove the present systematical barriers, but also needs to accelerate the modernization of township governance system and capability.Part Ⅰ Introduction: This part mainly discusses the origin and the significance of this study and related researches at home and abroad, focusing on the definitions of relevant concepts and in-depth understandings of the theories concerned, so as to arrive at the possible creativities and shortcomings of this paper.Part Ⅱ Towns, Villages and Township Governance:This part reviews the development process of Chinese towns and villages through historical analysis, together with the evolution of the township governance models in China. It demonstrates the progress of our rural governance and the changing role of the township governments. It also dissects the existing problems and their reasons in the governance of towns and villages in China.Part Ⅲ Experience and Inspirations from Domestic and International Township Governance:Via a comparative study, this part elaborates on the lessons and inspirations we could draw in reconstructing township governance from the well-developed experiences and practices of domestic and international governance models of towns and localities.Part Ⅳ Development of "Sunan Townships" and the Motivations for Reconstruction: With favorable geographic conditions and a sound industrial base, the southern part of Jiangsu Province (namely Sunan) has caught hold of the opportunity of reform and opening-up and witnessed the rise of a large number of township enterprises with strong comprehensive strengths, featuring huge economic volume, high concentration of population, advanced level of urbanization, and distinctive features of industries. Utilizing the PEST analysis, this part introduces the macroeconomic environment and influencing factors of the reconstruction of township governance models in southern Jiangsu from the four aspects of politics, economy, society and technology. It also closely studies the motivations behind the governance reconstruction of such economically powerful townships from the facets of economy, politics and reality. By pointing out the stark conflict between the traditional administrative system of townships and the sustainable development of the rich Sunan townships, this part advises on reconstructing the governance model in order to explore opportunities, stimulate vitality and enhance performances.Part Ⅴ Research and Practices on Decentralization in Sunan Townships:Under the guidance of national, provincial and municipal policies, the Sunan Townships, based on their own conditions, have carried out pioneering explorations such as expanding management authority, comprehensive law enforcement, convenience services for people, optimizing institutional set-up and staffing, and developing innovation economy, etc.Part Ⅵ Achievements and Problems of the Decentralization in Sunan Townships: Apart from the positive effects of the authority expansion in Sunan Townships, this part elaborates on a number of problems thereof and reasons behind them. Through such decentralization, progresses have been made in phases in terms of self-optimization in the management system and promoting overall economic and social development. At the same time, however, the legitimacy of decentralization, the preferential resource policies, policy implementation, relevant responsibilities, and the institutional barriers still remain as problems that can hardly be ignored.Part VII Measures and Thoughts in Promoting Administrative Reconstruction of Economically Powerful Townships in China: the paper points out that an upgrade from decentralizing rich townships to enriching townships via decentralization is subject to an elevated thought height, the guidance of institutional design, the improvement of functional elements, the lawful use of administrative powers, and the urban evolution process; only by continuously promoting the complementary reforms in a strategic, holistic, systematic manner can we succeed in deepening the reconstruction and benefit from the "reform dividend".Part VIII Conclusion:This part summarizes the key points in the paper and tentatively proposes directions for further reflection in this regard.更多还原