中國大陸省直管縣體制改革進程中的市縣關係嬗變：一個“關係維度－影響因數－關係類型”分析框架

City-county Relationship in the Process of the Province-govern-county Reform: Evolution, Dilemma and Optimization

市管縣體制曾經在計劃經濟時代發揮了以城帶鄉、城鄉互助的積極作用，然隨著市場經濟發展，其行政成本過高、政策執行梗阻、影響行政效率、限制縣域經濟發展、市縣爭利等弊端日漸暴露，飽受詬病。為此，2005年以來，中國大陸探索推行省直管縣體制改革。省直管縣體制改革是一項系統工程，市縣關係是其中的重點與難點。基於“關係維度─影響因數─關係類型”分析框架，將市縣關係放在省直管縣體制改革的背景中考察，可以發現，其將歷經從改革前的縱向隸屬關係向改革試水期的縱橫向競合關係及至改革完成後的橫向分治關係之嬗變。此嬗變過程中，各種體制性、認知性、制度性、管理性影響因數不但主導了市縣關係走向，而且造成當前改革試水期的市縣關係陷入尷尬與分歧、摩擦與衝突、無序與失範、爭利與矛盾等困境。為此，消解試水期市縣矛盾困境並適時優化市縣關係，特別是未來良性市縣關係的構建，應從洞悉市縣關係嬗變的規律趨勢及其影響因數中尋求策略。 The province-govern-county reform is a systematic project, within which city-county relationship is an outstanding key point. When studying the city-county relationship in the background of the province-govern-county reform, it is not hard to figure out that this relationship would experience an evolution from hierarchical subordination before the reform to coopetition during the reform and at last to horizontal partition by the end of the reform. However, during the process of this evolution, influenced by systematic, cognitive, institutional and managing factors, there are dilemmas in frictions, contradictions, conflicts and disorders in the transitional period of the reform. Therefore, in the future, in order to construct a benign city-county relationship, optimizing strategies should be searched in the basis of thoroughly understanding the trend of the evolution of city-county relationship as well as those influence factors.