学者称驻京办被撤因其名声不好 存在具有合理性_新闻中心_新浪网
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学者称驻京办被撤因其名声不好 存在具有合理性
　　存留驻京办：博弈刚刚开始
　　喧嚣多日的“撤销驻京办”风波终于尘埃落定，但一切并未随县级驻京办被判“死缓”而结束。公众舆论大多聚焦并讨伐驻京办的“腐败”形象，鲜有人去探究该机构在目前体制下存在的合理之处。《中国新闻周刊》深入调查后发现，只要基层政府对中央财政支持资源的抢夺以及稳定压倒一切的政治需要还存在，对驻京办的调整政策就有可能遭到下面的扭曲执行，达不到预期效果
　　本刊记者/申欣旺
　　曾在近几年内数次引发舆论热议的驻京办将迎来它的第一次“尘埃落定”。日，国务院办公厅印发了《关于加强和规范各地政府驻北京办事机构管理的意见》，意见对各级驻京办的去留做出了规定，其中县级驻京办被勒令撤销。
　　1月28日，国务院机关事务管理局有关负责人在接受媒体采访时给出了明确的时间表，“7月19日前，全国至少146家地方政府职能部门驻京办和436家县级政府驻京办必须撤销，且不得变换形式存在。”
　　“跑部钱进”及维护稳定
　　听到撤销驻京办的消息，郭进(化名)感觉自己又一次站在了十字路口，他对《中国新闻周刊》讲，“我将近一年的努力白费了。”
　　郭进是南方某县驻京工作站的主任，工作站在主管单位――北京市发改委没有注册登记，“但老家的人都认为这就是驻京办”，他有意向记者强调工作站的合法性。
　　一年前，一次偶尔的机会，郭进听在法院上班的朋友说起单位修建办公大楼经费缺口很大，院长鼓励大家发动关系去北京要钱。听者有心，郭进想起自己有个战友的儿子在中央某部委工作，就抱着试试看的态度去联系。没想到后来竟然真的弄成了，他也因为在“中央有人”，成了县领导面前的红人。
　　命运开始改变。此前，他只是县机关一名小科员，已过不惑之年，次次提拔都没有他的份，属于“不受单位头儿待见”的那种。
　　在2009年初的人事调整中，他被任命为县驻京工作站主任，从科员一跃成为和他眼中的“头儿”平级的部门负责人。提起此事，他仍是激动不已，说，“这是过了40岁后自己不敢想象的事情。”
　　赴京上任前，县委书记设宴为他送行，勉励他“把这个前几年一直没有做好的工作担起来”。他从其他人那里打听到，“县委书记说的没有做好的工作，是指前几任没有和中央权力部门建立好沟通渠道，没有给县里的发展起到作用。”
　　但来北京他才意识到，“要发挥作用有多难，刚开始连各部委的门都找不到”。更难堪的是，因为没有注册登记，开展工作总归不是那么理直气壮。和县里的部门领导管几十个人不一样，他只有两个兵，没有对口的单位，连在老家工作那种虽然没有职位，但也是给公家办事的安全感都没有了。
　　在北京的一年，他慢慢发现，和他的工作站类似的机构很多，只不过有些县“设的是正规的驻京办，做起事来顺手，不用遮遮掩掩”。
　　国务院机关事务管理局的数据显示，县级驻京办截至2006年底有436家，另有数据认为，包括郭进所在的那种没有登记的工作站，县级驻京机构有超过5000家之多。
　　和郭进一样，李平(化名)听说要撤驻京办感到很难过，“这几年，我们做的工作有目共睹，光接访这块，为首都的稳定就作了很大的贡献”。记者了解到，县级各种形式的驻京机构，近些年来一个主要的工作就是维稳。
　　李平告诉《中国新闻周刊》，“我们老家离北京只有几百公里，老百姓上访很方便，坐上车几个小时就到了，有事没事就往北京跑，多的时候一个月有几百人来上访。”
　　信访“一票否决制”令基层政府领导压力重大，作为县里的驻京维稳工作站站长，李平四分之三时间都在接访，并且是24小时待命，随叫随到，最难办的是，还得要说服上访人，把他们送回家。上面有规定，如果接到的人第二天又去上访了，李平他们是要挨批评的。
　　“最多的时候，一次接了20多个人，让他们住在一起，我守了一个通宵，怕他们跑了，第二天一个没少给送回去了。”李平似乎很得意自己的工作，“这么多的上访人员给北京带来的治安压力很大，如果我们都撤了，哪有这么多熟悉上访人员的人手来应付？”
　　谢平华(化名)的想法则不一样，“让他们(意指决策层)撤(驻京办)吧，我正好回去过个好年，等上访的人多了，看他们怎么后悔。”
　　谢平华是中部某县的驻京维稳工作人员，在北京呆了三年。他抱怨“拿老家的工资在北京消费，工作压力大，和家人也不在一起”，并说自己“厌倦了这种生活，越早撤越好”。
　　采访西部某县驻京机构主任陈敏的时候，他接到公安部门的电话，要他一小时之内去接人。另一位原本答应与记者面谈的县级驻京联络站主任临时接到任务，有10多个上访人员已经到京，但在北京西客站没找到，他只好推掉记者的采访到敏感地点去蹲守。
　　陈敏很坦率，他说自己“并不看好这次撤销县一级驻京机构的做法”。他的道理很简单，“发文的只是国管局和监察部，政法系统这么重要的部门都没有参与进来，可见这个文件是多么的浅表。”
　　也有观点认为，撤驻京办主要是对民意的一次回应。中国社科院法学研究所一位学者告诉《中国新闻周刊》，“撤驻京办不在于真的能解决腐败或者其他问题，也不是不知道这个机构能发挥的作用，最主要的原因是它的声誉太臭，到了需要给老百姓一个说法的时候了。”
　　一位在京参加老乡慰问会的东部某县常务副县长翁耀强(化名)表示，“驻京办由于工作的特殊，腐败问题可能会有，但不能因噎废食，县级政府承担着民生工程的大部分工作，但参与中央决策的能力非常微弱。”
　　北京大学宪法学与行政法学教授姜明安针对“跑部钱进”带来的腐败问题提出建议，“增加公众对基层政府的制约，应该逐步启动县长这个层面的直选，并可以考虑将直选推进到市一级。”
　　“驻京办代言很重要”
　　吴礼典属于驻京机构负责人中的另类，和其他驻京机构人员躲着媒体或者不愿具名不同，他爽快地接受了《中国新闻周刊》采访，“这个机构没有人们想象的那么坏，没必要躲着媒体。”
　　吴礼典的身份是浙江瑞安市驻京办主任，担任这个职务多年。瑞安属温州下辖的县级市，被认为是“温州模式”的重要发祥地。
　　据吴礼典统计，1994年设置驻京办的瑞安，在全国范围来说也是最早设立驻京办的县之一，同属温州的乐清市到了1997年才设置驻京办。
　　“那个时候并没有接访一说，因此，把维稳工作当成县级驻京办的全部，这是不对的，”吴礼典说，瑞安驻京办的设置，主要还是经济社会发展的需要。
　　“1999年温台高速建设的时候，按照当时的规定，地级市进出口只有一个。但具体到我们瑞安，经济发展比较好，一个乡镇的财政收入就有几个亿，对交通的需求很大，离高速公路出口太远，投资者就不乐意。”吴礼典说，当时的一个做法就是“跑部”，主动和交通部沟通，说明当地的实际情况和需要。
　　“事实证明沟通很有价值，交通部对这条高速公路的进出口设置做了灵活处理。中央作规划的时候一盘棋，但对地方的实际情况并不了解，这就需要有个渠道和中央沟通，能说这不重要吗？”吴礼典反问记者。
　　吴礼典认为，“离北京这么远，有一个驻京办为县级政府代言很重要。如果每件事都要书记、市长来办，费用贵、浪费时间不说，从行政效率上来看也太低了。”
　　这个观点也得到不在此次裁撤范围之内的某些地市级驻京办负责人的认同。西南某市驻京办陈主任告诉记者，自己所负责的驻京办只有4个人，主要考虑的是市里的大事，很少能有精力来考虑县一级的问题。
　　这位主任坦率地表示，“从行政级别上来看，县领导和市驻京办平级，很难让市驻京办认同他们的思路或者说指挥市驻京办推动一些工作。另外，他们都是正处级，是升迁竞争对手，就算能为县级政府做一些事，很多市驻京办也可能不会帮自己的竞争对手。”
　　一位经济较发达的县驻京办主任表示，“驻京办被批评跑部钱进，这个结论很武断。在我看来，这一方面表明地方利益或者地方所期待的利益得不到平衡的照顾；另一方面表明地方有了主体意识，主动参与或者希望影响中央的决策。”该主任认为，基层设驻京办，表明其作为独立的一级政府自身利益诉求的觉醒，而不再仅仅是作为省或者市的下设机构而存在。
　　《中国新闻周刊》记者获知，近年来，中央加大对地方的财政转移支付，各地均有机会获得民生、环保、教育诸领域的财政拨款或者国债支持。
　　湖南省某县“新增中央投资项目进展情况”2009年报告显示，该县“大力争取国家支持，共争取新增中央投资四批219个项目，项目总投资42598.1万元，其中中央投资14463.75万元。”获得中央支持力度超过总投资金额的三分之一。
　　在陕西省某县的政府网站上，记者亦看到，该县2009年在垃圾卫生填埋厂、污水处理工程、农村安全饮水几个项目就获得中央财政支持逾两千万。
　　上述驻京办主任反问记者，“你以为这些项目不去沟通，不去争取就能获得？那不是天上掉馅饼吗？”他直截了当地说，“如果不能改变这种转移支付的方式，就不要轻易去改变地方获得支持的方式，否则反而会削弱地方的发展能力。”
　　针对驻京办的“跑部钱进”现象，北京大学宪法学教授张千帆提出的建议是，“中央一级做通盘的考虑，并负责监督，但不去决定具体投给谁多少钱。把这个权力下放到省里去，由省一级政府针对规划提出具体的、可行的方案。省一级对下面的情况就熟悉多了，省里来决定如何分配，相应能考虑到县一级的利益，就相对要公平些。”
　　尽管张千帆担心此举会导致驻京办变成驻省会办，但都挤在北京的情况就会改观不少。近三年来，张千帆研究的一个重要领域就是中央与地方关系，他认为，“此次对驻京办的裁撤，应转变为对传统治理模式的调整，通过权力下放来实现。”
　　暧昧的生死大限
　　无论如何，中央关于撤销一部分驻京机构的文件已经公开发布，半年大限也在一天天减少。
　　郭进告诉《中国新闻周刊》，还没有得到县里的意见，而最新接到的指示是，县里准备新建火车站多年，一直无法立项，希望郭进到有关部门跑一跑，看能否往前推进一步。
　　吴礼典显然很看好县级驻京办的存在，对于是否撤销，他也表示未接到通知。但他告诉《中国新闻周刊》，“1994年瑞安驻京办成立，是经浙江省人民政府和北京市人民政府共同批准的。这说明，我们这个驻京办的设立是得到认同的。”
　　耐人寻味的是，过去四年饱受诟病的驻京办，在此次裁撤中命运不一。国管局负责人1月28日的答记者问给地市级以上的驻京机构吃了定心丸，同时给县级驻京办下达了“死亡通知单”。
　　1月30日，南方某省驻京办召集辖区内各地级市驻京办负责人开会，“会议的精神主要有两点，一是市一级的驻京办保留很有必要，将根据新的文件向省里面申请继续保留；二是与会人员一致认为，县级驻京机构不应该再保留，撤销之举大快人心。”出席会议的某市驻京办主任尤某告诉《中国新闻周刊》。
　　接近驻京办的人士分析认为，“‘同室操戈’表明即使同是驻京办，由于服务的主体不同，仍然有着不同的利益诉求，如果县一级的被撤销，那省市级的驻京办发言权无疑会更大，机构少了，鱼龙混杂的情形将有所改观，受到的指责会相应减少。”
　　张千帆认为，在目前央地权力格局下，地方各级政府都希望保留自己的驻京办，要撤也是撤下级驻京办。“这说明在这个问题上，中央和地方以及地方各级之间还缺乏默契。解决驻京办问题的关键在于重构央地关系、明确各级事权并保证政府法治。中央和地方、上级和下级不应该只是一种命令和服从的关系，各自都应该在自己的法律权限内运行。”
　　有观点揣测，众多各显神通的驻京机构使得腐败现象加剧，正常的行政权力被“潜规则”化解。这种观点认为，近年来数量与能力膨胀的驻京机构一方面表明了中央集权能力的加强，同时又对中央权威构成了挑战。而中央此次裁撤众多县级驻京机构，本身可能是强化中央权威的一个举措。
　　值得关注的是，从1月24日的高调宣称裁撤驻京办，到28日国管局答记者问中关于“驻京办助首都维稳部分保留”的表态，期间的变化令人玩味。
　　私下里，翁耀强对记者表示，“裁撤以县级为主的驻京机构，是一场不对等的利益博弈，县级政府无论如何是没有能力去讨价还价的，如果必须要撤掉的话，成立地方驻京商会或者老乡会，由他们为家乡的发展去做一些工作，也不失为一种好办法。”
　　李平断言此次撤销行动难以奏效，他接到的最新指示仍是全力做好维稳和接访工作，防止因为驻京机构裁撤的消息导致春节前信访人员增多。李平认为，可能的结果有两种，“要么是基层政府顶着被查的压力，让这个机构以其他形式继续存在；要么是政法部门再来一个文件，允许基层政府设立区别于驻京办概念的维稳工作站。”
　　1月29日，在国管局负责人答记者问的第二天，全国信访局长电视电话会议在北京召开。国务委员兼国务院秘书长马凯在会上指出，“充分发挥基层组织和社会各界化解信访问题的作用，使大量的矛盾问题及时得到了有效化解和解决，维护了群众的合法权益，促进了社会和谐稳定。”
　　一位对维稳工作较为熟悉的学者对《中国新闻周刊》表示，撤销县级驻京机构将陷入原来意图的反腐败与加强信访工作的冲突之中。
　　而在记者致电北京周边一位县委书记时，他表示，目前撤销驻京工作站还未列入议事日程，布局年后两会的维稳工作仍是重中之重。★
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