CHANGING CONCEPTS OF DECENTRALISATION
权力下放观念的转变
In its original n of the transfer of powers from a central to a devolved jurisdiction, 其原始意义上的权力转移是从中央到地方分权下放权限，Decentralization（分权） might be en as a simple structural conquence of a re-allocation（重新分配）廉颇蔺相如列传教案 of functions（功能）文件夹英文 within government. 其可能被视为一个简单的结构性后果，即政府内部功能的重新分配。The results of a real transfer of power, however, have profound implications for the state, central/local relations and the citizen. 然而，真正权利移交的结果对国家、中央或地方关系和公民都有深刻的意义。李芮Decentralization has been recommended inter alias a cure for cumbersome decision-making at the centre；分权被推荐为是治愈繁琐决策的中心；as a means of achieving greater popular participation中国少先队队歌（参与） and of empowering（授权） local communities; as an aid to planning, improved policy implementation and more effective delivery of rvices; 作为一种实现更大的大众参与和赋予地方社区权利的手段；作为一个提高执行政策和更有效地提供服务的援助规划；as a way of generating additional resources; a
nd, at its widest, as a necessary pre-condition for small-scale, ecologically sustainable, development. 作为一种产生额外资源的方式;和作为一个小规模的、生态可持续发展的最广泛的必要前提。If any of the goals were realized, the difficulty of undertaking; such reforms might be justified. 如果这些目标实现了，难以进行这种改革可能是合理的。As it is, decentralization has often been the rock on which a considerable（相当大的） burden（负担） of expectations has been dashed, expectations which have been amplified by association（协会） with important political and social aspirations and with different schools of thought in public administration. 正如，分权常被认为是掺和在期望中的一块具有相当大负担的岩石，导致在公共行政中期望被那些有着重要政治和社会抱负及不同派别思想的协会所放大。
世界上最高的山脉In addition, the emphasis given to the key features of the concept have changed over time, further confusing purpo and outcome. 此外，给予重视概念的主要特点已经随着时间的推移改变了，这进一步混淆的目的和结果。In the 1950s and I960s, notions of decentralization under lay attempts to create or recover indigenous local government from colonial practice. 在1950和1960年，在分权观念下试图建立或恢复从殖民到本土地方
政府的实践。In the 1970s, it was a central plank in the New Public Administration movement's efforts to achieve greater responsiveness and responsibility. 在1970年,世界大学生运动会在新公共管理运动的努力下它作为中央条款，实现了更大的能力和责任。In the 1980s, it was emphasized as an esntial component of effective "bottom-up" planning;. 在1980睡眠易年代,它强调了作为一个有效的“自下而上”计划的重要组成部分。And in the 1990s, as I shall argue, the doctrines of New Public Management have resulted in a further redefinition of the concept, changing its application from a focus on territorial and structural concerns to a functional division between policy-making and execution. 二年级科技小制作简单又漂亮而在上世纪90年代，我认为，新公共管理学说已导致其概念进一步的重新界定，在政策制定和执行之间，转变了从领土集中和结构关系向职能分工的应用 。
Political, Economic and Organizational Constraints on Decentralization政治，经济和组织限制分权
In the face of this kaleidoscope of promis and changing fashions, governments have been understandably cautious about decentralization. 面对这个万花筒般的承诺和改变着
的时尚,政府对于分权的谨慎是可以理解的。Few have ventured beyond limited devolution and most have retained effective control of key ministries and resources at the centre. 很少有人敢于冒险超越有限的权力下放，保留了有效控制关键部门和资源中心。Where decentralization has occurred, even under the wave of reforms induced by New Public Management, the suspicion persists that there must be immediate or future political, rather than economic or administrative, advantages to the new arrangements. 当权利下放的时候，甚至在新公共管理改革的诱发浪潮下，依然对现在或将来的政治优势来做新安排存在怀疑而不是经济或行政方面的优势。
Governments have not always en the diver values of decentralization as positive; in its wider context, transfer of power from centre to locality may have rious repercussions for the social fabric of the state.政府并不总是积极的看待分权的不同价值取向，在其广泛的背景，把中央的权利下放到地方已经严重影响了国家的社会结构。
Three arguments appear to have been particularly persuasive. 三个观点似乎特别有说服力。
First, decentralization may accelerate fissionary tendencies. 首先, 权力下放可能加快分裂的倾向。In countries compod of different ethnic groups, in tho with large areas or with cessionist movements, administrative reform of this nature may well contribute to festering local pressures for greater autonomy and control over resources. 在那些由不同人种组成的，国土面积大的或者有分裂主义运动的国家，这种性质的行政改革可能会更加恶化地方更大的自主权和对资源的控制压力.Under such circumstances, as Slater obrves, "the centralisation/decentralisation issue can become a predominant focus of societal conflict".在这样的情况下，据slater观察发现“集权/分权问题会成为社会冲突的主要焦点”。 In some cas, of cour, pressure will build to the point where some devolution of power becomes imperative. 在某些方面，当然，压力会建立在一些权力下放成为势在必行的点上. In the interim, however, it is scarcely in the best interests of the centre to strengthen the periphery. 然而，在此期间，它几乎是加强中央外围的最佳利益点。 Similarly, when a state is perceived to be under long-term threat either from external aggression or becau of economic vulnerability, a more centralized system usually results. 同样，当一个国家被认为是处于长期的威胁下，这种威胁可能是外部侵略或由于经济脆弱性，一个更加集中的体系通常会产生。
Second social and economic values will have a direct impact on the center's willingness to countenance（支持） decentralization. 第二，社会和经济价值对中央支持分权的意愿有直接影响。If a society places emphasis on the redistribution of wealth, on planning in the interests of equity, on permitting the state to play a significant role in capital accumulation or maximizing economies of scale, then centralization may be the preferable option. 如果社会强调财富再分配、强调利益的公平分，允许国家在资本积累或规模经济最大化中发挥重要的作用，那么中央集权或许会是更好的一个观点。Particularly if it is linked with the power to tax locally, devolution may actually increa inequalities between richer and poorer communities with damaging conquences for unity. 特别是当它与本地税收的权力有联系时，权力下放可能实际上增加了富裕社区和平穷社区的不平等性，并对两者的统一带来了破坏性的后果。If there is a connsus that public investments should be as widely and equitably distributed as possible, a political decision at the centre on the agreed sharing of benefits between regions is more likely to achieve that objective. 如果能有一个共识，公共投资应尽可能广泛，尽可能公平地分配，关于同意分享各地区利益的一个中央政治决策更可能实现这一目标。There is always, in any event, a te
nsion between the actual and potential distribution of resources which is invariably associated with question of decentralization. 在任何情况下，实际的和潜在的资源分配之间有着一种张力，而这种张力与权力下放总是相关的。In command economies of tho caught up in the process of rapid industrialization, moves to divert resources to regional or local governments are likely to be countered by central politicians and officials who do not wish to e the national effort dissipated. 在控制经济那些方面赶上了工业化的快速发展过程，转变到转移资源到地区或地方政府，很可能会被不希望看到国家努力消退中央的政治家和官员所反驳In other countries with small land areas, such as Hong Kong and Singapore, there may em little apparent point in territorial decentralization if it simply creates more expensive layers of government while reducing the benefits of economies of scale. 在其他领土小的国家如香港和新加坡，如果只是简单地创建更奢华的政府阶层而减少了规模经济的利益，那么似乎看上去在领土的权力下放几乎没有明显的特点。
