| "Counties governance well,the world is stable", this is a chinese adage and a classic summary to China's historical experience thousands of years ago. As an indispensable local government's hierarchy every dynasty in our history, county play the basic role irreplaceablly in maintaining our country's political rule,social stability and economic development and others. According to statistics in 2007, our county administrative units have 2859s(include urban areas), the county area has 896 square kilometers, above the 93% of the country's land area, the county's total population is 9.15 hundred millions, accounting for the national total population 70.41%. Otherwise, the sixth national evaluation report to the county economy basic competitive published in december 2006 displays that the gross pomestic product of our counties is 8.81 billion yuan, only occupies the 48.1% of our country's GDP. It is thus clear that is disproportionate to the size and population in our counties at present, the serious backwardness of county development is disadvantageous to the modernization drive and realize the goal of well-offsociety of our country. The causes that leading to counties downstream in national economy are two sides:one side is industrial development and the rise of cities, city economy gradually occupy a leading place in national economy and replace countr economy. The other side is the bind of the existing administrative structure——city-governing-county system, it concentrates various production factors of counties on cities, makes the counties lost lost the power and capacity of development. Industrialization and urbanization is the inevitable trend of modern social development, we must reform from the current city-governing-county system if county economy will made rapid progress.As the name suggests, city-governing-county system is the system that the city above region(include municipalities directly under the Central Government, deputy provincial cities and prefecture-level cities) governing the counties(cities) surrounding it. City-governing-county system was gradually established and developed accompanied by the rise of our cities and its status increased, its comprehensive starting and setting off a upsurge was in 1980s. The system played an active role on promoting the cooperation,integration of urban and rural and urbanization as the system running early. But along with that market economy system gradually improved and economy developed further, besides, the system in the design was defective and local government took "rush headlong into action" strategy in the system construction based on the behavioral motive of Optimal Interest, the system changed its colours and evolved as the system of city-governing-county that is widely condemned by academics, and then becomed the systematic obstacle to restrict the development of economy and society in county scale. In recent years, the voice to reform the system of city-governing-county and implement the one of province-governing-county rises from peak to peak, practice field has also appeared the correspondence experiment with the system of province-governing-county, the reform has also acquired the support of the central leadership and policy of the state. For example,in june 2005, Wen Jiabao the state council premier made clear:"what conditions, we can push the test point that'county administrated by province'" in the working conference on rural tax reform.《The proposal constituted by chinese central communist on eleventh five year plan of national economic and social development》also proposed to "reduce administrative layer "and "Straighten out the fiscal systems at and below the provincial level, where conditions permit, can we carry out the management system of that'county administrated by province'". Therefore, it has become an irresistible trend to carry out "province-governing-county-directly" system. The purpose of writing this paper is to study systematically and roundly the drivers for implementing "province-governing-county-directly" system, analyse the current difficulties and obstacles of implementing the system of province-governing-county, explore the local government system model to promote the development of county economy, society and urban- rural coordinated development on the basis of introducing the pilot of some provinces reform and field research on the survey basis.There are six chapters in this paper, besides the preface.Introduction part:The author sets forth the principle of Marxist historical materialism on the relationship of economic basis and superstructure, points out that local government system is the realm of superstructure, its produce and development is decided by economic basis that the dominant total of social relation in society. In addition, the effectiveness of government management is the important factor to affect the select of local government system, includes the scale and ability of government, the level of economic development, the state of science and technology development and the ability of civil self-organization, and etc. Ideal system model of successive rulers is the three levels system, it includes the central government, top of the local government and the local government. But chinese government has always been set up a number of tiers, local government institutions hanged about between the secondary and third class, informal and formal over a long period of time, and developed to the current four-stage systen of province, city, county, township because of the limit of objective condition and subjective factors. The system of city-leading-county has played an active role to strengthen the cooperation, promote the integration of city and countryside and urbanization in the running early, but the system was distorted in its running and became the obstacle of restricting economic and social development of the county domain accompanied by the establishment and gradually perfect of market economy, and the system adulterates too much human factors in its implementation, so it has become an irresistible trend to reform the present system. The part also interprets the important concepts involved in the thesis, analyzes the status quo of the selected subject, put forward the specific methods of research and writing clue.Chapter one:The historical evolution of Our local administrative structure. Print xia dynasty is the first united kingdom, is also the first political entity country. The development of our local administrative structure can be divided into five phases: prefecture-county system, state-prefecture-county system, line(road)-state-county system,province- prefecture-county system,and province- county system. The system of prefecture-county replaced enfeoffment system, it ended the long situation of the division of the country by the nobles, in favour of national reunification and political stability, and has the progressiveness of history, but the system constituted china's Highly centralized political basis and the ideological basis of feudal despotism, it forms the situation of strong the centre and weak the locality easily, and goes against the exertion of local autonomy and initiative, so as to local administration has emerged the strange circle of two-stage system——three-stage system——two-stage system——three-stage system over and over. As the superstructure, administrative setup is the comprehensive reflection on political, economic, social and cultural factors of class society. The content and form of all elements and structural system of administrative division all occurred in varying degrees with historical evolution, social varieties and political changes. The main factors to influence the local administrative structure are:land area, the factors of politic, economy, nationality and historical society,etc.chapter two:Municipal organization and the emergence and evolution of city-leading-county system. As the local administrative organization, municipal organization originated in the european countries. The municipal organization of modern sense in china has gradually formed and developing based on implementing divide-and-conquer to city and countryside accompanied by the development of city. Municipal organization experienced different stages:attached to county, exist simultaneously with county, some cities leaded counties. The system of city-leading-county originated from Nanking National Government, experienced the process of development:building—withdrawing—rebuilding—implementing fully. The rise of city-leading-county system has a institutional look of strengthening cooperation in urban and rural and driving the process of urbanization, and related to the development and evolution of administrative office closely, because that many prefecture-level city now are constructed on the administrative office old. The positive senses of city-leading-county system implementation are:in favour of reducing the scale of government structure, improving administrative efficiency; overcoming the problem of excessively large of span of management and overburdened management of province-governing-county system; promoting the development process of urbanization and the rapid development of central city; breaking away from traditional disadvantages of administrative barriers between town and country, industry separating from agriculture between city and county, providing advantageous conditions for realizing complementary advantages and overall development between town and country, promoting the integration and people's common prosperity of them; achieving effective intefration and optimizational configuration of production factors on greater area, increasing the efficiency of resource utilization, promoting development of regional economies, etc.However, because the system devise of decision-makers existed defects, and the drive of local benefit, city-leading-county system had been gradually evolved into city-governing-county system based on the purposes of administrative management and cadre emplacement, and become the barrier to county development.chapter threer:The driver analysis of province-governing-county(city)-directly. The direct cause of province-governing-county(city)-directly reform is to eliminate the disadvantage of city-governing-county system, the fundamental cause is to promote the development of county economy and society. Along with the establishment and progressing elaboration of market-based economy system, the system of city-governing-county aimed at administrative management and cadre emplacement exposed so many defects, these defects are mainly:lacks of the support of constitution and laws; governmental functions of prefecture-level city are vague and improper, restrict its active role playing; increasing layers enlarge the administrative cost; the phenomenon of city illusory is serious; the phenomenon of small-horse-pulling-a-cart is now in common; exists the phenomenon of city-eating-county, city-scraping-county, city-sticking-county, and others. The article advances that the direct power of reform comes from regional interior——the push of "Root economy" bases on the analysis of two different types development level of the county scale in the developed region, but in the less developed areas, the direct power of reform comes from outside force that the push of the central and provincial governments. In addition, the theories of that management hierarchy should be coordinated with span of control, the relationship between fairness and efficiency, democracy and the development of civil society, managing state affairs according to law, scientific outlook on development, and the investigation on the theory of the reform of city-governing-county system, provide theoretical references for the reform of province-governing-county (city)-directly. historical accumulation of traditional administration in china, realistic environment of politic,economy and culture, practical reform of province-governing-county (city)-directly, provide the realistic basis for implementing the system of province-governing-county. The emergence of new public management theory and then the outbreak of new public management movement, raised local government reform of which the main contents were to change the government power running mechanism and management style, adjust local administrative districts and position governmental function in western countries, this provides beneficial international experiences for the reform and innovation of our local government system.chapter four:The practical progress and faced with difficulties and obstacles of province-governing-county (city)-directly reform. The defects of "City-governing-county" system existed have been paid much attention by the central and local govermenrs, many provinces are actively trying the reform of province-governing-county (city)-directly. Zhejiang is the original province of implementing finacial province-governing-county system the policy of expanding powers to strong county and achieved profit first in our country. Hainan province has been implementing administrative system of province-governing-county (city)-directly since it build in 1998. After the reform of Zhejiang and Hainan, Hubei, more than 20 provinces attempted the reform of province-governing-county (city)-directly actively and have achieved many valuable experience and gratifying achievements as Anhui,Jilin,Jiangxi and others. However, it has exposed some questions in the reform process everywhere, such as that the power exists the phenomenon of illusive expanding, the substantial powers did not delegate enough; it is in contradiction with current system of administrative management and legal system; the position of municipal government functions improper, the relations between city and county are trending tension; county difficult to adapt to the needs of management after powers expanded; lacks of relevant regulations and measures of institutional supervision on the exercise of power,etc. This chapter explores the difficulties and obstacles in the implementation of province-governing-county system more comprehensively mainly from three different perspectives that the level of psychology,operation and institution.chapter five:The path of innovating our local government system. The system of province-governing-county (city)-directly is the important system design of reforming and perfecting our local government system. But it decided that the system of province-governing-county (city)-directly could not be the only choice of our local government system because of that massive land, large in population, and unbalanced seriously in development of various areas are china's actual conditions. This paper explores the innovative pathes of our local government system from two levels both macrostructure and specific methods. The macrostructure is:province-governing-county as the principal system, City-leading-county as the assistant form, two institutions develop simultaneously and harmoniously. The thesis analyses the necessity and importance of establishing the new system structure, provides basic idea of system innovation:innovating political culture, transforming government functions, Changing management styles, improving supervisery mechanism, perfecting laws and regulations,etc in the base of analysing difficulties and obstacles that the reform of province-governing-county (city)-directly faced in the preamble, and then provides the assume as the necessary complement of province-governing-county system to restruct the system of "city-leading-county". The specific pathes of innovating our local government system include: reducing province area and merge counties; adding municipalities and other large cities; expanding powers to strong county; enhancing the regional integration of between county and county, city and counties; prefectural-level city leading suburb counties; ranking the order of merit to county-level district; township (town) government implementing the system of combining township (town) self-rule with agency of county government,and so on.chapter six:Self-governing of country scale—the outlet and direction to reform our local government system. Through combing the evolutional history and regular of chinese government system, this writer thinks that local government system will inevitably be involved in the revolving queer circle of "two-stage system——three-stage system-- two-stage system——three-stage system" if reling on the reform of the government itself, but governance theory provides a new concept and path for our local government system reform. The county autonomy is the sublimate and specific application of tgovernance theory, it makes for the benign interaction between government organization and the public, changed the traditional administrative concept and ways of power acting of government officials, solved the question of government officials that work and responsible for whom.The county autonomy is the rational system choice to reform province-governing-county system for achieving substantive results, and the foundamental path of China's ethnic regional autonomy policy for really implementing.
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