论文总字数：18278字

摘 要

“市管县”显露的弊端愈来愈多的情况之下，“省管县”渐受重视，但也随之衍生出目标困境、立法困境、利益困境以及管理困境，使其受到极大的阻碍。

本文在深刻理解“省管县”内涵的基础之上，厘清“省管县”体制的前因后果，结合当前实施状况，有针对地分析造成其四大困境的具体原因，包括目标确立缺乏长远谋划、法治技术理念滞后现实、利益均衡切割把握不足、权力配置崇尚职责同构。进而对症下药，提出重建目标、慎修宪法、有效切割利益，适当调整管理幅度和层次，权责统一等方法解决目前的困难。从而达到使之与“市管县”共同重塑地方行政体制，以期高效、节本、灵活、正义的行政效果。

关键词：省管县 地方行政体制 利益冲突

The historical evolution and present predicament

of the "province governing county" system in China

Abstract

In order to solve the problems of the "city governing county" system, such as the low administrative efficiency, the increase of the administrative cost, the development of the county and so on. The CPC Central Committee and the State Council have repeatedly put forward the reform of "province governing county" system. After the reform of the "province governing county" has been widely promoted, the goal dilemma, the difficulties of legislation, the plight of the interests and the difficulties of management come into being.

Based on the understanding of the connotation of the province tube county " ，this paper clarifies the "province governing county" system antecedents and consequences and combined with the current status of implementation, and according to the analysis of specific causes of its difficulties, including lack of long-term planning, the establishment of the goal of the rule of law idea behind the reality, to balance the interests of technology, grasp the lack of cutting power allocation advocating isomorphic responsibility. And then put forward the right to remedy the problem, put forward the goal of reconstruction, careful constitution, effective cutting interests, appropriate adjustment of the management level and level, the unity of rights and responsibilities and other methods to solve the current difficulties. In order to improve the "province governing county" system, make it become one of the administrative system of the local government optional, with other forms of administrative system to restore the local administrative system, improve administrative efficiency, reduce administrative costs, the release of administrative activity, meet administrative justice.

Keywords：Province governing county；Local administrative system；Conflict of interest

目录

摘要 I

Abstract II

绪论 1

（一）选题背景 1

（二）研究意义 2

一、“省管县”体制的内涵 3

（一）行政体制的内涵 3

1.中央行政体制 3

2.地方行政体制 3

（二）“省管县”体制的内涵 4

1.省的内涵 4

2.县的内涵 5

3.“省管县”体制的内涵 5

二、“省管县”体制的相关理论 6

（一）委托——代理理论 6

（二）管理幅度与管理层次理论 6

（三）中央集权与地方分权理论 6

三、“省管县”体制的历史演变 8

（一）“省管县”的渊源：秦至清 8

（二）“省管县”的萌芽：民国初年 8

（三）“省管县”的确立：建国初期 9

（四）“省管县”的灭失：文革至新世纪初 9

（五）“省管县”的复苏：21世纪初至今 9

四、“省管县”改革的现时困境 11

（一）目标困境 11

1.省管部分与省管全部的矛盾 11

2.强县扩权与府际和谐的矛盾 11

（二）法治困境 12

1.宪法规定与具体法律的矛盾 12

2.立法缺位与现实先行的矛盾 12

（三）利益困境 13

1.利益维持与利益重置的矛盾 13

2.利益投入与利益产出的矛盾 14

（四）管理困境 14

1.层级削减与幅度扩张的矛盾 14

2.集权权威与分权制衡的矛盾 15

五、探析“省管县”改革困境的原因 16

（一）目标确立缺乏长远谋划 16

（二）法治理念立法技术滞后 16

（三）利益冲突程度预估不足 16

（四）权力配置崇尚职责同构 17

六、破解“省管县”改革困境的对策 18

（一）目标重建，多元自主 18

（二）慎重修宪，从速立法 18

（三）利益相协，有效切割 19

（四）层幅适当，权责一致 19

结语 21

参考文献 22

致谢 22

绪论

（一）选题背景

秦置郡县，天下一统，从此地方行政体制基本形式得以确立。随着版图的扩张、人口的增加，地方行政体制也不在断演变，终而形成今日“省—市—县—乡”四级制为主的地方行政体制。进入到21世纪，尤其是近些年来，中国的经济、政治、文化、人口等国情已与往日大不相同，现行的四级制也已出现了“小马拉大车”、“财政漏斗”、“行政低能”等严重问题。于是，在削减行政层级、提高行政效率，激活县域经济的殷切期待下，“省管县”改革再次被提上议程。

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