摘要
精准规范运用行政问责机制,纠正防范问责泛化、简单化、随意化等乱象,是基层政府治理的题中之义。从“价值—工具”的二分法的基本假设出发,构建“目标替代”与“执行工具化”的解释框架,系统探究行政问责的执行过程,有助于破解实践中产生的种种行政问责难题。基层行政问责中的目标替代产生于制度要素的实际运作中,政府组织方式、治理方式与政治生态的调整,使基层官员在问责活动中采用了目标替代的策略,使得对上负责、模糊责任、指标管理、形式管理、惩戒处置等工具目标取代了人民赋权、权力规制、规范行为、合规控制、绩效改进等价值目标。这种目标替代强化了行政问责制度中价值与工具的分离,进一步产生了“执行工具化”现象。借鉴沟通理性理论,增加问责制度中的沟通与对话机制,是防治基层问责乱象,解决目标替代与执行工具化问题的有效路径。
It is essential for grassroots governments to make precise and standardized use of the effective administrative accountability mechanism and correct and prevent the misuse of excessive,simplified and arbitrary accountability in their governance.Starting from the basic assumption of the dichotomy of“value and tool”,this paper is intended to construct the explanatory framework of“goal displacement and implementation instrumentalization”,and systematically explore the implementation process of administrative accountability,which is helpful to solve various problems of administrative accountability arising in practice.The goal displacement of administrative accountability in grassroots governments is originated from the actual operation of institutional elements.The adjustment of the organization mode and governance mode of the government and its political ecosystem enables the grassroots-government officials to adopt the strategy of goal displacement in their accountability activities.It can also replace such value goals as empowerment by the people,rules and regulations of power,normative behavior,compliance control and performance improvement by such instrumental goals as responsibility to the superior,fuzzy liability,indicator management,form management,punishment and penalty.This kind of goal displacement can strengthen the separation of value and tool in the administrative accountability system,and further the phenomenon of“implementation instrumentalization”.To refer to the perspective of communication rationality and enhance the communication mechanism and dialogue mechanism in the accountability system is an effective way to prevent and control the accountability confusion in grassroots governments and solve such problems as goal displacement and implementation instrumentalization.
作者
盛明科
杨可鑫
Sheng Mingke;Yang Kexin(School of Public Administration,Xiangtan University,Xiangtan 411105,China)
出处
《北京大学学报（哲学社会科学版）》
CSSCI
北大核心
2021年第4期132-140,共9页
Journal of Peking University(Philosophy and Social Sciences)
基金
国家社会科学基金“研究阐释党的十九大精神”专项“完善激励和约束并重的干部考核评价机制研究”(项目编号:18VSJ101)。
关键词
行政问责
目标替代
执行工具化
问责乱象
administrative accountability
goal displacement
implementation instrumentalization
accountability confusion
