【作者】 武磊；

【导师】 吴志华；

【作者基本信息】 华东师范大学 ， 教育经济与管理， 2011， 博士

【副题名】以河南省焦作市解放区为个案

【摘要】 我国行政体制改革的目标取向是建设服务型政府。服务型政府是在民主和法治的框架下,以公民本位、社会本位为价值基础而建立起来的,以实现和增进公共利益,促进人与经济、社会和谐发展为目的,以为公民和社会组织提供公正、透明、优质、高效、便利、廉价的公共产品和公共服务,满足公共需求为主要工作内容,并在工作程序、工作方式,以及政府机构设置等方面,一切以方便公民和社会组织为出发点和落脚点,承担服务责任,接受公众监督,并将民意作为其合法性的主要来源和评判工作优劣的根本尺度的一种政府范式。我国的服务型政府建设一定程度上受到西方行政改革理论的影响。以新自由主义经济学理论和管理学理论为理论基础的新公共管理,主张运用市场机制和工商业管理方法来改造公共部门,其所倡导的“顾客导向”的服务理念和其所主张的多样化的管理方法和手段,对服务型政府“政-民”关系的重塑和服务职能的强化具有一定的启示意义。建立在民主公民权理论、社区与公民社会理论、组织人本主义和后现代公共行政理论基础之上的新公共服务理论,主张用一种基于公民权、民主和为公共利益服务的新公共服务模式来取代新公共管理,强调政府治理应以公民为导向,以服务为核心,以公民和社会组织充分参与、对话协商为基础。新公共服务理论对我国服务型政府人本位价值观的确立产生了积极影响,其对民主价值和公民权的追求,对“责任”的解析和对“人”的重视,都对服务型政府建设有一定的启示意义。以治理、善治等为主要内容的治理理论,主张政府与社会和公民分享权力,主张公民参与,建立一种政府机制、社会机制、市场机制耦合,政府、社会、市场协同的新的治理模式。其要达到的善治状态,必须具备“法治”、“透明性”、“责任性”、“有效性”、“廉洁”、“公正”等要素。这些理论或多或少成为我国服务型政府建设可供参考的理论基础。我国的服务型政府建设有其深刻的社会背景。受上世纪八十年代以来的西方行政改革思潮的冲击和影响,服务行政理念已深入人心,正在成为当今许多国家公共行政的普遍型式,推动政府本质属性的回归。在国内,市场经济体制的建立和逐步完善,要求政府要从根本上实现转型。而与此同时,大量社会民生问题的出现,和贯彻落实科学发展观,也对政府转型提出了迫切要求。信息技术的迅速发展,在对政府行为提出新的要求的同时,也给政府改善服务提供了技术支持。正是在这样的大背景下,我国的服务型政府建设登上了历史舞台。服务型政府的提出,缘于地方政府的先行先试和理论界的探索。近年来,在中央的倡导和推动下,县区级地方政府在服务型政府建设方面作了积极探索。如宁波海曙、南京鼓楼、辽宁法库、成都锦江等一批县市区,在搭建社会参与平台、深化行政审批制度改革、推行为民服务代理、强化公共财政建设、推进制度创新、改革绩效考核等方面,都有一些好的做法,创造了一定的经验。但总体来看,我国的县区级地方服务型政府建设还处在探索阶段,同时,一定程度上陷入了改革的困境,正面临许多深层次问题和矛盾,主要表现为：政府政绩追求的冲动与社会建设的非显性化之间,政府的自利性与服务型政府的“公共性”要求之间,公共资源使用的不合理与民生改善所需资源的严重短缺之间,“官-民”文化的传统与服务型政府所要求的平等服务意识之间,体制的惯性与服务型政府所要求的规范、高效、透明的政府运作机制之间,对上负责的体制与为公众服务的要求之间存在着矛盾。河南省焦作市解放区近年来在服务型政府建设方面进行了积极探索。一方面不断推动政府自身改革,围绕服务取向,对政府职能、政府架构、行政运作模式、服务机制、财政支出结构等进行改革和调整,使政府体制、机制和工作方式、工作内容发生深刻转变,政府服务不断得到强化；与此同时,重视社会基础层面的变革,与政府转型相配套,持续推进社区建设,完善社区的管理和服务功能。解放区做法启示意义主要在于,为县区级地方服务型政府建设提供了一种社会管理社区化,“政(府)-社(会)”协同治理的服务型政府建设新样式和一种政府服务社区化的新导向。但解放区的服务型政府建设还存在许多不足,主要是一些方面的改革还没有触及体制深层,新的运行机制还不完善,政府职能转变还不到位,责任约束体系还不健全,“政(府)-社(会)”协同治理模式还有待进一步提高治理水平。进一步推进服务型政府建设,解放区也还面临不少难题,这些难题主要是观念的制约、绩效考核及干部使用制度的偏失、工作缺乏自主性、财政体制不合理、法治保障的欠缺等。要突破县区级地方服务型政府建设的现实困境,就必须着力培育服务行政的职业理念,将服务变成政府工作人员的自觉行动；改革现行的财政体制,理顺扭曲的财权、事权关系,建立公共财政投入民生的约束机制,为服务型政府建设提供财政保障；建立更加符合服务型政府建设要求的领导干部绩效考核体系,引导干部树立正确的政绩观；强化服务行政问责,形成服务责任履行的约束机制；制定相关的法律法规,为服务型政府建设提供法治保障。为此,必须加紧制定县区级地方服务型政府建设规划；出台规范政府服务的相关规定；改革干部任用制度；调整对县区政府的绩效评价体系；加快服务型政府建设的相关立法。更多还原

【Abstract】 The current Chinese government reform is aimed to build a service-oriented government. Service-oriented government is in the framework of democracy and the rule of law, it built on the basis of citizen-orientation and social orientation. Its purpose is to realize and enhance the public interest, to promote the development of harmonious society; its main working content is to provide fair, transparent, high quality, efficient, convenient and inexpensive public product and public service to the citizens and social organizations, in order to satisfy the public demand; he starting point and the foothold of the government work methods, work style and the way of its organization arrangements is to facilitate the citizens and social organization; the government assume responsibility, service, accept the supervision of the general public and take public opinion as the main source of its legality and the basic judge criterion of the government paradigm.The theory of administrative reform in western countries has great influence on the construction of Chinese service-oriented government. by applying the new liberalism theory of economics and the management theory as the theoretical basis of the new public management, the new public management theory advocate to use the market mechanism and business management method to transform the public sector, their idea of a "customer-oriented" service concept and the diversity of management methods have certain meanings to relocate "government-people" relations and to strength the government service function. Based on democratic citizenship theory, community and civil society theory, organization humanism and post-modern public administration theory, the new public service theory advocate the use of citizenship, democracy and public interests in the new public service model to replace the new public management, it emphasize that governance should be citizen-oriented, service as the core, full participation of citizens and social organizations, and should be based on dialogue and consultation. The new public service theory has a good influence on setting a people based value for Chinese service-oriented government, its pursuit of democratic value and citizenship, the analyses to "responsibilities" and its "human" attention are all have the certain enlightenment in service-oriented government construction. Governance theory claims that Government should share the power with the civil society. It advocate citizen participation, claims to establish a coupling among government mechanism, social mechanism and the market mechanism, so that the government, the society and the market will collaborate to a new governance mode. In order to achieve good governance status, they must have the "rule of law", "transparency", "responsibility", "validity", " probity ","justice" etc. These theories are more or less becomes the reference theory for service-oriented government construction.Chinese service-oriented government construction has its profound social background. By the impact and influence of the administrative reform in some Western countries Since 1980s, service administration concept has been firmly established, and become the general pattern of national public administration; it promotes the return of the essential attribute of government. In China, the establishment of market economy and its gradual improvement require government to a fundamental transformation. In the meantime, a large number of social and livelihood problems arise, and implement the scientific concept of development has also made an urgent request to the government transformation, on the other hand, the rapid development of information technology provides a technical support to the government transformation. In this backdrop, Chinese service-oriented government construction boarded the stage of history.Service-oriented government derives from the local government trial and theoretical exploration. In recent years, under the central government drive, county-district level government has made an active exploration in service-oriented government construction. For example, some county-district level government such as Haishu Ningbo, Gulou Nanjing, Faku Liaoning, Jinjiang Chengdu have made good practices in building social participation platform, deepen the administrative examination and approval reform, implementing the public service agent, strengthening the public finance construction, promoting institutional innovation, reforming the performance appraisal etc, and have gain valuable experiences. But overall, county-district level service-oriented government building in our country is still in the exploratory stage, to some extent is facing many deep-seated problems and contradictions, shown as contradictions between the impulse to the government achievements pursuit and non-dominated social construction, the undergoing self-interest of government and the public demands of service-oriented government, the unreasonable use of public resources and a severe shortage of resources to improve people’s livelihood, the sense of equality service between traditional "official-people" cultural accumulation and the service-oriented government, the institutional inertia and the operating mechanism of criterion, highly efficient, transparent which are required by service-oriented government, the system of responsible for superiors or for the public requirements etc.JieFang District JiaoZuo city made a continuous exploration in service-oriented government construction in recent years. On the one hand, continue to promote the reform of the government itself, by focus on service orientation, the government tend to make reforms and adjustments on government functions, government structure, administrative operation mode, service mechanism, financial expenditure structure, etc, the purpose of this reform is to transform the government system, mechanisms, work style and continually strengthen government services. On the other hand, JieFang district pay attention to government transformation matching, emphasize on social basic level change, and finally promote community construction, improve community management and public service functions. The enlightenment of JieFang district is that, it provides a new style for county-district level government to build a community-based social management, "government-society"collaborative governance and a new guide to a community-based public service. However, Service-oriented government construction in JieFang district also has many deficiencies, Mainly shows that some reforms has not touched the deep institution system, the new operating system is still not consummate, the government function transformation is not in place, the responsibility restraint system is not perfect, the " government-society" collaborative governance model needs further Improvement, etc. Therefore, JieFang district is still face a lot of problems in further promoting service-oriented government construction, these problems are mainly shows in the area of concept constraint, the deficiency of cadre hiring and performance appraisal system, the irrational financial system, the lack of legal support etc.To break through the realistic problems of service-oriented government construction in county-district level, we must strive to cultivate professional concept of administrative service, make serve to government workers conscious action, innovate the financial system, rationalize the distorted dissymmetric relationship between the administrative rights and financial rights, establish public financial investment in the people’s livelihood constraint mechanism in order to build a financial security for the service-oriented government. Establish more efficient cadres’performance appraisal system in line with the service-oriented government construction to guide cadres to set up correct concept of achievements, strengthen the service administration accountability, forming service duty constraint mechanism; Formulate relevant laws and regulations to provide legal support for the service-oriented government construction. Therefore, the local government must press on with the development of county-district level service-oriented government construction plan, establish related regulations to regulate the government service, Reform the cadre employment system, adjust county-district level government performance evaluation system, Speed up the construction of service-oriented government legislation.更多还原