地方政府改革:一种全球性的透视Local Government Reform:A Global Perspective
万鹏飞
摘要(Abstract):
文章以当代发达国家地方政府改革的个案分析为基础,系统地分析了国外地方政府改革的背景、内容和特点,并在此基础上总结了国外地方政府改革的经验和教训。文章指出,从地方治理角度来思考地方政府改革值得关注;市场化的政府改革不应忘记政府的政治和公共的职能;政府的合并和扩大并不是解决公共事务问题的最佳办法;地方政府改革应采取自上而下和自下而上相结合的战略;地方政府改革必须面对复杂多变的社会环境所提出的挑战。
关键词(KeyWords): 地方政府;地方治理;地方政府改革
基金项目(Foundation):
作者(Author): 万鹏飞
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