【作者】 杨楠；

【导师】 乔耀章；

【作者基本信息】 苏州大学 ， 政治学理论， 2014， 博士

【摘要】 责任，是一种担当，至少可以包含三个方面的含义：一是使人担当起某些职务和职责；二是做好份内之事；三是做不好份内应做的事情，应承担的过失。政府责任就是政府的担当，即政府必须做好份内的事情，否则就必须承担相应的后果，受到相应的谴责和惩罚。责任是现代政府必须具备的主要品质，也是现代政府一个非常明显的特征。只有对公民负责、并且公共权力受到限制的政府才是责任政府。政府及其公务员行使的每一项公共权力背后，都连接着一份相应的责任。不承担责任的政府必然会导致公共权力的滥用，不负责任的政府是不具有合法性的政府。地方政府也同样如此。乡镇政府作为最基层的地方政府，是联系“三农”的纽带，其管理服务的对象主要是广袤农村和广大农民。“基础不牢，地动山摇”，如何准确定位乡镇政府责任或乡镇政府应履行什么样的责任，从而使乡镇政府合法高效地运行，是地方政府研究中一个非常重要的课题。乡镇政府在国家政权体系中处于基础和末梢。国家关于农村工作的路线、方针、政策，国家的宪法、法律和有关行政法规、命令、指示，最终都要通过乡镇政府的规划、组织、指挥、协调和监督来贯彻落实。这种地位的特殊性决定了它需要履行的责任与其他层级的政府责任有所区别的特殊性。改革开放以来，农村的变化是有目共睹的。国家对农村放权让利，一方面使农村经济体制发生深刻的变更，同时在客观上不可避免的导致农村在历史中积淀而成的社会结构发生剧烈变化。基层自治是调动广大群众生产积极性的必要措施，但也使农村在组织形式上日趋分散、流动性加强。政府因放权而对农村的控制和管理相对放松，导致很多国家政策很难以行政命令的方式真正在农村贯彻施行。新的问题带来新的思考，特别是随着城乡二元结构导致的农村新的社会问题的涌现，推动城乡统筹发展，国家更需要通过正式的政权组织渠道，特别是乡镇政府来履行好这样一种特殊的责任，维护好农民的权利，保障好农民的权益。因此，乡镇政府的责任问题研究是当前经济社会发展背景下很有意义的一个重要课题。本文以乡镇政府的责任建构为研究目标，以城乡统筹发展为背景，以治理善治理论、新公共服务理论以及责任政府理论为理论支撑，以乡镇建制的历史变迁、现实改革、城乡统筹发展的要求、实态运行为叙事脉络，通过理论研究、比较分析、历史分析以及规范研究方法，论述乡镇政府的责任建构。具体来说，主要从以下几个层面展开论述。首先阐述城乡统筹、乡镇政府、责任以及政府责任的概念，并就城乡统筹与城镇化、城乡一体化，政府责任与政府职能的概念进行了辨析，说明在城乡统筹背景下研究乡镇政府责任问题的理论基点——治理与善治理论。指出全面深化改革时期的中国乡镇政府究竟要履行什么样的责任，必须在结合基层实际和自身实情的基础上，充分借鉴先进的理论思考与实践探索。其次研究乡镇政府责任建构所面对的崭新背景，即随着当前农村工业化进程的不断加快以及农村产业结构的调整，城乡统筹发展是大势所趋，并对当前城乡统筹发展现状、问题及原因进行了深入分析。2013年召开的中央城镇化工作会议明确指出新型城镇化是实现农村社会现代化的必由之路。只有在传统农村城镇化上取得突破，才能较好的解决三农问题，促进城镇和乡村协调发展，开拓农村市场、激发农村和区域经济活力，推动农村产业升级，实现农村跨越式发展。在国家层面上看，推动农村城镇化也是实现建设小康社会和和谐社会的必要条件。这一表述给乡镇政府的责任建构带来了更新更高的要求。再次通过论述中国农村自十一届三中全会以来行政环境发生的前所未有的变化，剖析我国乡镇政府责任重新建构的必然性，并辅以实例，从宏观到微观，从一般到个别，联系共性与个性，普遍与特殊，深入分析我国城乡统筹进程中乡镇政府的责任问题，探讨乡镇政府责任建构的历史机遇和现实实践。最后以治理与善治理论和责任政府理论为指导，提出在统筹城乡的发展进程中，推进公共服务的城乡均等化是乡镇政府守土有责的题中之义。责任的建构应致力于相应的体制机制的健全、民主机制的完善和农民民生的改善。指出把建设责任型政府作为乡镇政府努力的目标，能够在最大程度上解决好现代社会条件下政府和农民的关系问题，规范乡镇政府的行政行为，发展农村的基层民主，培养成熟公民，为实现好、保障好最广大农民的根本利益、建设和谐农村奠定基础。更多还原

【Abstract】 Governmental responsibility means that the government is actively responsible forits own behavior to the people in the exercise of social management function. Thegovernment should bear legal liability in accordance with the law when exercise itsfunctions and powers irrelevantly. So they can achieve the unification of power andresponsibility. It reflects the basic aspects of government activities. As a grass-rootsgovernment, township-government is closely related to Agriculture, farmers, ruralareas. The township government should pay attention to the construction ofresponsibility, because that its management was mainly targeted at the vast majority offarmers in rural areas. But the township government has been unable to adapt to the fastdevelopment of social because of conservative and lagging functions, and value ofpromoting the development of township economy. In view of this, how to carry out thegovernment’s responsibilities is an important subject in the study of the process ofeconomic and social development in towns. In this paper, I will discuss the frame andchange of government responsibility based on the urban and rural development as thebackground. The main line is how to carry out township government’s responsibility.The theory of governance, good governance theory and the theory of responsiblegovernment offer theoretical support. The paper will describe the historical changes andreality reform of organizational system of small towns, requirements and operation ofbalancing urban and rural development, with theoretical research, comparative analysis,historical analysis, and normative research. To be specific, I spread out exposition onthe following aspects. First, the paper makes an overall explanation of governancetheory, good governance theory and the theory of responsible government. Chinatownship government can not reform by its own, but must be in the actual foundation,profits from the overseas theoretical thinking and practical exploration of reform. The good governance theory which is in common with Confucianism has a broadapplication space in our country. It is of great guiding value in the reconstruction of thetownship government’s responsibility. And it should be the new idea for our townshipgovernment’s duty orientation in the process of rural and urban orchestrates. Second,The paper point out that with the accelerating rural industrialization process and theadjustment of rural industrial structure, balancing urban and rural development isrepresent the general trend, what becomes a new background. Under the background ofthe "Small town, Large strategy" by the Party Central Committee, The economicdevelopment in the new period of urban and rural and construction of a well-off societyget a more powerful driving force. It has become a new background for townshipgovernments to change responsibilities, what brings the newer and higher requirementsfor the establishment of responsible government. Third, the paper Analysis on thenecessity of changing township government’s responsibility by discussing huge changesin Administrative Environment of China’s rural since the Third Plenary Session of the11th Central Committee. I provide some examples to discuss the hard course and systemobstacle for changing responsibilities of township government. Forth, be directed by thetheory of governance and good governance theory, the paper points out that take theresponsibility of public service is one of the core responsibilities of townshipgovernment. After studying the types and requirements of public goods needed in rural,the paper clearly defines which types of public goods township government shouldsupply, and how to provide services that benefited people. The paper holds that if wemake construction of the responsibility government be the goal of the reform oftownship government, we can resolve the relationship between the social conditions ofthe government and farmers, Standardize the management behavior of townshipgovernment, develop the grassroots democracy in rural areas, and cultivate a maturecitizen society. We may realize the majority of farmers’ interests and construct aharmonious rural. It is also conducive to all kinds of social organization developmentand Balance urban and rural development. Lastly, the paper thinks townshipgovernment’s core of Responsibility orientation is the role it takes. According to thepolicies and routes made by our country and party, and combined with the theory ofgovernment responsibility and the concept of good governance, by adapting to the newrequirements of balance urban and rural development and the characteristics of the township government administrative agencies, the paper thinks the main responsibilityfor current period of is to establish Supporting mechanism of balancing urban and ruraldevelopment, the mechanism for expressing the interests of farmers, and long-termmechanism to solve the problem of farmers’ income. In all, the article research settledthat in the context of the urban and rural, as the primary state power directly facing themasses, what township government should do to strengthen the sense of responsibilityand fulfill their responsibilities. The core of government’s responsibility should be toprovide public services for the rural residents. The government responsibility should belocated in sound of corresponding institutional mechanisms, improvement ofdemocratic mechanisms and increase farmers’ income. In summary, the article In-depthanalysis the question of responsibility of the township country of the process of urbanand rural combine urban and rural areas, control and good governance theory, Publicservice theory，the township government′s scientific orientation.更多还原