中國大陸「凡進必考」制度，對基層公務員專業能力的影響

Impacts of Examination Reform of the Civil Service on the Professional Competence of Grass-Roots Civil Servants in China

中國大陸公務員錄用制度改革經歷了1993年《暫行條例》和2005年《公務員法》兩個關鍵的制度變遷節點。對於這兩個節點對中國大陸基層公務員專業能力發展所產生的影響，既有研究多數停留於現象描述，缺乏對這些制度影響的實證研究。本文聚焦於制度變遷的核心「凡進必考」制度，借鑒制度主義的理論視角，運用新興的斷點迴歸方法（Regression Discontinuity Design），開展基於中國大陸10個城市基層公務員調查資料的實證研究，探析兩次制度變遷與「凡進必考」對基層公務員專業能力的影響。研究發現：《暫行條例》在各地實施後對基層公務員隊伍的專業能力產生了顯著的提升作用；由於行政管理環境更加重視政治素質的要求，2006年《公務員法》的實施對專業能力的提升作用則不再像此前那樣顯著。此外，「凡進必考」的單一化錄用方式帶來了若干負面影響，也呼喚更靈活務實的用人方式。在此基礎上，本研究指出了近年來中國大陸公務員錄用制度改革中對多種錄用方式的互補與平衡的現實動力與制度理性。

The reform of the recruitment system of China's civil service has undergone two key institutional changes: the National Civil Service Provisional Regulations of 1993 and the Civil Service Law of 2005. In terms of the impact of these two institutional nodes on the development of the professional competence of civil servants at the grass-roots level in China, most of the existing studies are restricted to general descriptions, lacking empirical research on the impact of these systems. Focusing on the system of ''every entry must be examined'' (凡進必考) as the core of the institutional changes, this paper uses Regression Discontinuity Design to carry out empirical studies based on a civil service survey on 10 cities across China, exploring the impact of the two institutional changes on the development of the professional competence of grass-roots civil servants. It is found that the Provisional Regulations have a significant effect on the perceived professional competence of the civil service at the grass-roots level. In addition, due to the emerging requirement of political quality, the improvement of professional competence was less significant prior to the implementation of the Civil Service Law; Moreover, the rigid recruitment method stipulating that ''every entry must be examined'' (凡進必考) brought about some side-effects. More flexible and practical recruitment channels are urgently needed. On this basis, this study points out the realistic dynamics and institutional rationality of complementation and balance in the reform of the civil service's recruitment system in recent years.