基层治理中的“制度悬空”：现状、原因与对策--基于信访为切入点的案例分析

The Current Situation,Reasons and Solutions of "Suspension of System" in the Grassroot Governance——Based on analysis about letter-or-visit matters

信访制度从2005年起开始执行,至今已经十余年,但信访却依然是农民诉求利益的主要方式之一。文章通过《我不是潘金莲》电影的叙事和对麻城某村的调查,综合分析认为,信访制度之所以在乡村很难落实,主要原因在于:基层干部的"懒政""自私自利"和缺乏来自中央和农民的有效监督;基层干部遇到特殊情况,很难下手,比如老人信访、病人信访、妇女信访,甚至缠访等,从而导致信访治理的诸多困境。但基层干部不能因为棘手就不想办法去处理,而应该在现有的信访治理机制上加强基层民主建设,减少乡村内部的政治冲突,并借助依法治国去根治基层干部的"官僚主义""形式主义""散漫主义"作派,切实履行对下也需要负责,从而让制度"去悬空化",达到社会长治久安。

Regulations on letters and visits have been executed for nearly ten years, yet letters and visits are still one of the main methods for farmers to express their interest and demands. This article, based on the movie named I AM NOT MADAME BOVARY and the research of Machen City, a countryside in Hubei, sorted out the reasons why letter-or-visit system can hardly be executed in the countryside. For one thing, it is because of the lazy administration, self-interest orien- tation of grassroots cadres and the lack of supervision from both central government and local peasants; for another, special situations such as petition from elderly people, patients and women as well as petition entanglement make it much more dif- ficult for grassroots cadres to tackle the problems. Nevertheless, it makes no sense for the grassroots cadres to deal with pe- tition cases due to these barriers. The solutions of the suspension of petition system lie in reinforcing the rural grassroots democratic political construction and relieving the political conflicts within countryside. Meanwhile, it is necessary to rein- force the legislation to cue grassroots cadres＇ working style, namely＂ bureaucrat-ism＂ , ＂formalism＂ and ＂undisciplined be- havior＂ and let them fulfill their responsibility for people,so as to get system rid of suspension and realize the social stability.