《经济管理学刊》| 曹光宇等：官员基层工作经历与城乡协调发展
文摘
财经
2024-12-16 19:00
北京
进入公众号 点击右上角“...”设为星标 防止内容走丢
官员基层工作经历与城乡协调发展
Officials’ Grassroots Work Experience and Coordinated Development between Urban and Rural Areas
【原文刊载在《经济管理学刊》2024年第3卷第3期】（2024年9月出版）
曹光宇，北京大学经济学院
Guangyu Cao (School of Economics, Peking University)
邓博文，周黎安，徐铭威，北京大学光华管理学院
Bowen Deng, Li-An Zhou, Mingwei Xu (Guanghua School of Management, Peking University)
本文系统整理了2001-2019年全国市委书记的县域主政经历数据，利用市级—年度面板数据开展实证分析，发现具有县委书记任职经历的市委书记可以更为显著地缩小辖区内的城乡收入差距。基于家户微观数据的分析显示，前述效应的一项具体机制在于提升农村居民的农业生产经营收入。就具体政策手段而言，具有县域主政经历的市委书记在任期间，当地政府工作报告会对农业工作给予更高关注，当地农业现代化水平和农业生产水准更高，农村金融供给也会有显著改善。本文首次实证检验了基层工作经历对于推进城乡协调发展的影响，验证了新时代十年以来干部递进式培养的扎实成效，对新时期推进乡村振兴、实现共同富裕进程中的干部选任工作具有一定借鉴意义。
关键词：基层工作经历; 城乡收入差距; 干部选拔; 乡村振兴
Keywords: Grassroots Work Experience; Urban-Rural Income Gap; Cadre Selection; Rural Revitalization
一、研究背景与意义
党的十八大以来，中国特色社会主义进入新时代，党的组织工作开创了新局面。以习近平同志为核心的党中央高度重视干部队伍建设工作，强调要“建设堪当民族复兴重任的高素质干部队伍”，在培养方式上则要发挥“一层一层考验、递进式培养干部”的制度优势，特别是要保证干部“深入基层、深入实际、深入群众”。而在各类基层工作经历当中，在县委书记岗位的历练是干部成长的重要台阶：能治理好一个数十万甚至上百万人口的县，往往就具备了在更高层次岗位施政的能力水平。近年来，在干部培养、选拔、任用过程中，党的各级组织部门也更加强调县域主政经历对领导干部的历练作用。以本文主要关注的地级行政区党委主官（以下统称为“市委书记”）为例，自党的十八大以来，我国市委书记当中有县委书记任职经历的人数占比稳步上升，从2012年的37.9%上升至2019年的45.5%。
自新中国成立、特别是改革开放以来，我国社会主义现代化建设事业不断推进。在经济社会发展绝对水平还较低的时候，将“跑得快”作为主要目标无疑是符合客观发展规律的；但当经济社会发展到一定水平后，就需要注重发展的整体效能，优化发展短板，避免“木桶效应”影响发展大局。党的十八届五中全会提出了创新、协调、绿色、开放、共享的新发展理念，其中“协调发展”即强调解决发展不平衡问题。而在协调发展的诸多任务中，城乡协调发展又是重中之重。党的二十大报告指出“城乡区域发展和收入分配差距仍然较大”，强调“全面建设社会主义现代化国家，最艰巨最繁重的任务仍然在农村”。因此，缩小城乡收入差距、形成城乡协调发展格局，是实现中国式现代化、解决我国社会主要矛盾的内在要求。
经过县委书记岗位历练的干部，一般对基层情况的了解更为深入、对民众特别是农民的感情更为深厚、对城乡差距现状和成因的把握更为深刻，应当在此过程中发挥砥柱作用。有别于以经济增长作为主要绩效指标的既有研究，本文主要考察县域主政经历对市委书记在推进城乡协调发展、缩小城乡收入差距方面的治理绩效和政策手段的影响，以此为切入点来评估递进式培养干部是否真正实现了让干部更解民情、更接地气的初衷。
二、主要内容
本文基于2001—2019年市级-年度面板数据开展实证分析。从治理绩效的角度看，曾经担任过县委书记的市委书记可以更为有效地缩小主政城市的城乡收入差距。该结果在不同实证模型下保持稳健。本文还在Liu et al.（2022）提出的双重差分（Difference-in-Differences，简称DID）框架下进行平行趋势检验，确认上述发现具有较为可靠的因果含义。针对工作履历的异质性分析表明：其一，不同层级的基层主政经历具有叠加效应，如果市委书记在县委书记之外还曾担任过乡镇党委书记，在缩小城乡收入差距方面的成绩会更突出；其二，不同类型县级行政区的主政经历所带来的影响也不尽相同，本市所辖县、非市辖区类型的县、农业人口大县的任职经历效果更为显著。区域层面的异质性分析显示，若市委书记主政地区下辖有国家级贫困县，则其县域主政经历对缩小城乡收入差距的作用更为显著。这体现了官员任职履历与区域发展禀赋的匹配效应。基于家户微观数据的分析表明，前述效应的一项具体机制在于提升农村居民的农业生产经营收入。就具体的政策手段而言，如果市委书记具有县域主政经历，则该市的政府工作报告会对农业工作给予更多关注，当地农业现代化水平和农业生产水准更高，农村金融供给也会有显著改善。
三、主要结论与政策建议
党的二十大提出“建设堪当民族复兴重任的高素质干部队伍”的重大任务，这将为全面建设社会主义现代化国家提供坚强的组织保障。作为基层治理的“前线总指挥”，县委书记这一任职经历是干部选任过程中最具代表性的基层经历之一。本文基于2001—2019年市级-年度面板数据进行实证分析，考察县域主政经历对市委书记在推进城乡协调发展、缩小城乡收入差距方面的治理绩效和施政手段的影响。
本文的实证结果主要包括以下四个方面。第一，总体而言，具有县域主政经历的市委书记可以更为显著地缩小辖区内城乡收入差距。第二，不同路径的任职履历、不同类型县级行政区的主政经历，所带来的影响也不尽相同：若市委书记在县委书记之外还曾担任过乡镇党委书记，在缩小城乡收入差距方面的成绩会更突出；本市所辖县、非市辖区类型的县、农业人口大县的任职经历效果会更为显著。第三，就区域异质性而言，若市委书记主政城市下辖有国家级贫困县，则其县域主政经历对缩小城乡收入差距的影响更为显著。这体现了官员主政经历与区域发展禀赋的匹配效应。第四，就具体政策手段而言，具有县域主政经历的市委书记在任期间，当地政府工作报告对农业工作的关注度更高，当地农业现代化水平和农业生产水准更高，农村金融供给也会有显著改善。
本文研究表明，干部递进式培养具有显著成效，有助于贯彻落实新发展理念，“宰相必起于州部”这一论断具有扎实的经验基础。在基层吃劲、在重要的岗位磨炼能帮助干部更好地适应新时代中国特色社会主义的发展要求。本文在这一总体性重要论断的基础上，立足我国组织工作的实际情况，提供了更为细致的特征事实和因果证据。与此同时，本文也为进一步推进中国式现代化、践行协调发展的新发展理念、实现乡村振兴与共同富裕提供了较为独特的分析视角。党的二十大报告强调“全面建设社会主义现代化国家，最艰巨最繁重的任务仍然在农村”，本文尝试从领导干部培养任用的角度出发，为新征程上进一步缩小城乡收入差距、形成城乡协调发展格局提供了有益的政策参考。
Since the initiation of China's reform and opening-up,the nation has made remarkable strides in its socialist modernization efforts.In the early stages,rapid economic and social development was prioritized to meet the immediate developmental needs,emphasizing industrial growth and urbanization to lift large segments of the population out of poverty and underdevelopment.This approach was aligned with the urgent need to build a robust economic foundation.However,as the economy advanced and reached higher levels of development,the focus shifted towards optimizing overall developmental efficiency and addressing imbalances to prevent the “wooden bucket effect”, where the weakest link constrains progress.Among these imbalances,the urban-rural divide remains a significant challenge,with substantial disparities in development,public services,and income distribution between urban and rural areas.These disparities not only hinder overall national development but also exacerbate social inequalities and tensions.Reducing these disparities is crucial for achieving coordinated development and resolving the fundamental contradictions in Chinese society,ensuring that the benefits of modernization and economic growth are more evenly distributed across different regions and communities.Cadres with experience as county party secretaries typically possess a profound understanding of grassroots conditions,strong connections with the populace,especially farmers,and a deep insight into urban-rural disparities.This uniquely positions them to facilitate coordinated urban-rural development.Their hands-on experience at the county level enables them to identify and address the specific needs and challenges faced by rural communities,thereby fostering a more inclusive growth model.Therefore,this research examines the impact of county governance experience on the governance performance and policy approaches of prefectural party secretaries,focusing on their effectiveness in promoting urban-rural coordination and narrowing the urban-rural income gap.By evaluating how these leaders leverage their grassroots experience to implement policies that bridge the urban-rural divide,this study aims to provide insights into effective governance strategies that support balanced and sustainable development.This study investigates the impact of county governance experience on prefectural party secretaries governance performance and policy approaches in promoting urban-rural coordinated development and reducing the urban-rural income gap.Utilizing prefecture-level annual panel data from 2001 to 2019,we conduct an empirical analysis.Our findings indicate that prefectural party secretaries with prior experience as county party secretaries are more effective in narrowing the urban-rural income gap in their jurisdictions.This result remains robust across various empirical models.We also perform a parallel trend test within the Difference-in-Differences (DID) framework proposed by Liu et al.(2022),confirming the causal significance of our findings.Heterogeneity analysis of work experience reveals two key insights:First,there is an additive effect of grassroots governance experience at different levels.Secretaries who have also served as township party secretaries achieve more pronounced results in reducing the urban-rural income gap.Second,the type of county-level administrative experience matters.Serving in counties within the same prefecture,non-municipal districts,and major agricultural counties has a more significant impact.Regional heterogeneity analysis shows that if a prefectural party secretarys jurisdiction includes national-level poverty counties,their county governance experience significantly enhances their ability to narrow the urban-rural income gap.This reflects the matching effect between officials work experience and regional development endowments.Micro-level household data analysis indicates that one specific mechanism driving this effect is the improvement of agricultural production and income for rural residents.Regarding specific policy measures,prefectural party secretaries with county governance experience tend to place a higher emphasis on agricultural work in their government reports.This leads to higher levels of agricultural modernization,improved agricultural production standards,and significantly better rural financial supply.This paper makes two significant contributions to the literature.First,it examines the impact of grassroots work experience on prefectural party secretaries governance performance and policy approaches,aligning with studies on leaders growth,education,and career experiences.Based on “imprinting theory”, which suggests that formative environments have lasting effects (Simsek et al.,2015),the study explores how pre-career experiences influence policy decisions.For example,secretaries with educated youth experience or those who grew up in impoverished areas tend to invest more in rural development (Du and Xu,2019; Deng,2023).Additionally,higher education levels and international experiences enhance leaders capabilities,such as attracting foreign investment (Gao and Dong,2017),while local governance experience influences policy preferences and effectiveness in regional development (Persson and Zhuravskaya,2016; Zhou et al.,2020).This research fills a gap by focusing on the experience as county party secretaries,providing empirical support for the effectiveness of progressive cadre training,and offering theoretical and policy insights for cadre selection and development.Second,by investigating the effect of county governance experience on urban-rural income gaps,this study contributes to the literature on urban-rural gaps,income distribution,and rural revitalization.Previous researches have highlighted urban-biased policies as key factors in widening these disparities (Zhou and Zhou,2011; Chen and Lin,2013).This paper examines broader policy choices and governance behaviors,tracing them back to leaders career experiences.The findings suggest that leaders with county governance experience are better positioned to promote coordinated urban-rural development and narrow income gaps.This research provides valuable insights for policy-making aimed at rural revitalization,achieving common prosperity,and advancing Chinese-style modernization,by focusing on the rural perspective in policy formulation and implementation.
原文引用：曹光宇, 邓博文, 周黎安, 徐铭威. 官员基层工作经历与城乡协调发展[J]. 经济管理学刊, 2024, 3(3): 83-106.
点击左下角“阅读原文”，即可下载全文PDF
（苹果系统需复制到浏览器打开）
学刊订阅方式及更多论文下载，请登录学刊官网www.qjem.cn
*我们期待公众号原创稿件，来稿、合作、问题请联系：qjem-wx ；推广内容如有侵权请您告知，我们会在第一时间处理或撤销；转载仅供思考，不代表《经济管理学刊》立场；其他平台任何形式转载请注明(来源：经济管理学刊 )。
