目 錄
導 言 ............................................................................................................................1
1 鄉鎮研究進程 ...................................................................................................18
1. 1　政策述評 ..................................................................................................18
1. 1—1　政策思路 ............................................................................................19
1. 1—2　變革曆程 ............................................................................................22
1. 1—3　農村綜閤改革 ...................................................................................31
1. 2　研究述評 ..................................................................................................33
1. 2—1　國內研究 ............................................................................................33
1. 2—2　國外研究 ............................................................................................40
1. 2—3　研究進路反思 ...................................................................................48
1. 3　本項研究說明 ........................................................................................53
1. 3—1　理論框架 ............................................................................................54
1. 3—2　分析路綫 ............................................................................................57
1. 3—3　研究方法 ............................................................................................61
1. 3—4　資料來源 ............................................................................................63
2 鄉鎮組織與人員...............................................................................................66
2. 1　組織現狀 ..................................................................................................67
2. 1—1　領導集團 ............................................................................................68
2. 1—2　部門設置 ............................................................................................69
2. 1—3　崗位人員 ............................................................................................72
2. 1—4　擴張機製 ............................................................................................76
2. 2　機構改革 ..................................................................................................79
2. 2—1　機構和人員精簡 ..............................................................................80
2. 2—2　鄉鎮撤並 ............................................................................................83
2. 2—3　改革設想 ............................................................................................85
2. 3　政府形態依據 ........................................................................................89
2. 3—1　形態特徵 ............................................................................................89
2. 3—2　演變路徑 ............................................................................................90
2. 3—3　政府組織基礎 ...................................................................................92
3 鄉鎮財政與債務...............................................................................................98
3. 1　財政睏局 ..................................................................................................98
3. 1—1　財政體製 ............................................................................................99
3. 1—2　財政收入 ..........................................................................................100
3. 1—3　財政支齣 ..........................................................................................103
3. 1—4　人員工資 ..........................................................................................106
3. 1—5　稅費改革 ..........................................................................................108
3. 2　債務危機 ................................................................................................109
3. 2—1　債務現狀 .......................................................................................... 110
3. 2—2　債務形成 .......................................................................................... 114
3. 2—3　債務化解 .......................................................................................... 116
3. 3　財政中的政治 ...................................................................................... 119
3. 3—1　財政危機與財政體製 ...................................................................120
3. 3—2　財政危機與政府問責 ...................................................................122
3. 3—3　財政危機與政府預算 ...................................................................123
4 鄉鎮權力與問責.............................................................................................128
4. 1　權力格局 ................................................................................................128
4. 1—1　一體性機構 ......................................................................................129
4. 1—2　一元化權力 ......................................................................................131
4. 1—3　內部單位 ..........................................................................................133
4. 1—4　垂直單位 ..........................................................................................135
4. 2　問責體係 ................................................................................................138
4. 2—1　縣市問責安排 .................................................................................139
4. 2—2　鄉鎮問責安排 .................................................................................141
4. 2—3　問責體係重心 .................................................................................143
4. 2—4　問責體係中的個人 .......................................................................145
4. 3　激勵結構整閤 ......................................................................................149
4. 3—1　雙重錯位 ..........................................................................................149
4. 3—2　目標替代 ..........................................................................................152
4. 3—3　政府的政治控製 ............................................................................153
5 鄉鎮控製係統 .................................................................................................156
5. 1　應酬上級 ................................................................................................156
5. 1—1　會議 ....................................................................................................157
5. 1—2　文件 ....................................................................................................158
5. 1—3　匯報 ....................................................................................................160
5. 1—4　接待 ....................................................................................................161
5. 1—5　檢查 ....................................................................................................163
5. 2　控製村莊 ................................................................................................166
5. 2—1　村乾部管理 ......................................................................................166
5. 2—2　村財務掌控 ......................................................................................169
5. 2—3　管片和包村 ......................................................................................171
5. 2—4　村乾部錶現 ...................................................................................173
5. 3　控製的僵局 ...........................................................................................175
5. 3—1　政策失靈 ..........................................................................................175
5. 3—2　基層失望 ..........................................................................................178
5. 3—3　管理脫節 ..........................................................................................179
6 鄉鎮公共服務 .................................................................................................183
6. 1　主要服務領域 ......................................................................................184
6. 1—1　鄉村治安 ..........................................................................................184
6. 1—2　鄉村教育 ..........................................................................................187
6. 1—3　公共衛生 ..........................................................................................190
6. 2　社會衝突管理 ......................................................................................193
6. 2—1　村莊內部衝突 .................................................................................194
6. 2—2　農民上訪 ..........................................................................................196
6. 2—3　基層政治信任 .................................................................................200
6. 3　統治與治理 ...........................................................................................204
6. 3—1　政府的公共責任 ............................................................................204
6. 3—2　乾部的雙重角色 ............................................................................207
6. 3—3　鄉村衝突的政治意嚮 ...................................................................208
6. 3—4　何謂好的治理 .................................................................................212
7 鄉鎮政府前景 .................................................................................................216
7. 1　危機中的命運 ......................................................................................217
7. 1—1　處境與演變 ......................................................................................217
7. 1—2　改革路徑 ..........................................................................................222
7. 1—3　改革難題 ..........................................................................................225
7. 2　現實中的未來 ......................................................................................226
7. 2—1　改革的現實選擇 ............................................................................227
7. 2—2　未來並不確定 .................................................................................229
7. 3　微觀改革的宏觀考量 ......................................................................230
7. 3—1　中央與地方關係 ............................................................................231
7. 3—2　黨和政府關係 .................................................................................232
7. 3—3　國傢與社會關係 ............................................................................234
8 政府運行與製度異化 .....................................................................236
8. 1　基層政府與農村發展 ...........................................................237
8. 1—1　曆史的進步 ........................................................................237
8. 1—2　理論的爭執 ........................................................................240
8. 2　基層政府內捲化 ....................................................................244
8. 2—1　公司化的政府功能 ............................................................246
8. 2—2　碎片化的政府權威 ............................................................248
8. 2—3　運動化的政府行為 ............................................................252
8. 3　基層政府製度異化 ...............................................................257
8. 3—1　異化 ....................................................................................257
8. 3—2　製度異化 ............................................................................260
8. 3—3　政府製度異化 ....................................................................263
8. 4　政府製度異化淵源 ...............................................................265
8. 4—1　體製的曆史慣性 ................................................................265
8. 4—2　政府自利性 ........................................................................270
9 政府製度化與改革 ..........................................................................274
9. 1　政府製度化基礎 ....................................................................274
9. 1—1　政治與行政 ........................................................................274
9. 1—2　政府與社會 ........................................................................277
9. 2　政府製度化 .............................................................................281
9. 2—1　政府製度化的提齣 ............................................................281
9. 2—2　政府創新動力 .................................................................................284
9. 3　改革討論 ................................................................................................289
9. 3—1　基層民主 ..........................................................................................289
9. 3—2　基層自治 ..........................................................................................293
9. 3—3　法治建設 ..........................................................................................298
附　錄 ........................................................................................................................303
參考文獻 ...................................................................................................................342
後　記 ........................................................................................................................366
修訂版後記 ..............................................................................................................368
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