基于公共场域视角的基层政府与社会合作治理研究

The Study on the Public Sphere,Behavior Mode and Organization Construction for the Collaboration of Local Government and Society

基层政府与社会之间公共场域的存在是中国基层治理区别于他国的重要特征。在这一公共场域中,行动主体从古代的胥吏、士绅发展到今天的社工、协勤和村官等,组织形式从里甲与乡约的混合模式发展到今天的村委会(党支部)、社区委员会(党支部)甚至虚拟的网格化管理区。而政策的传递方式则经历着自上而下的行政命令夹杂着自下而上的士绅"自治"模式,发展到今天的压力型体制和动员型治理相结合的模式。国家与社会在公共场域的融合和重叠使得中国的基层治理成为国家主导下的基层政府与社会合作治理。而合作治理的实现不仅需要弱化政府外部发包体系的行政化,疏通自下而上的参与通道,让地方精英和民众参与到公共政策制定和执行中来,还需要在吸纳国外经验的基础上回望历史传统,借鉴历史上的乡约与里甲混合模式,重新组织与整合基层社会。

With the transformation of Chinese society to post-industrialization and new urbanization, the social, economic and political status of the city and rural towns are greatly changed, in which the different stake holders request various kinds of benefits. Therefore, it is especially important for cultivating the good relationship among government, society and market and establishing the local pluralistic collaborative governance system. For the local governance, on one hand, it is an important content for establishing and improving the collaborative governance for solving the public problems in their jurisdictions for the local government; on the other hand, due to ＂the informal administration＂ in local governance, ＂the selective implementation＂ becoming more frequent, the lack of power for the local government responding to the social demands, and the limitation of the people and social organizations involving the social governance, the local government and the society cannot formulate good cooperation in long terms. From the perspective of history, there are lots of informal administrative staffs who work for the social management,in which the government organization only involve in if it is in a dispute. These staffs include the clerks hired by the county officials,local gentry and other staffs involving the social management. The clerks are responsible for reporting the local affairs from bottom to up and implementing the policy from the up to the bottom. In this case,the clerks are the connection points between the local government and society. Since most of the clerks are from the local and familiar with the local affairs, the local officials will have to face the corruption problems of the clerks. The collaboration between the local officials and the informal clerks is the normal status of local governance. At the same time, the local gentry such as the retired officials and other preeminent family in the local involve in the local governance such as the public education and social relief. On one hand, the clerks help the local officials to implement the policy, and on the other hand, they reconcile the conflict between the local government and society,so it is to some extent that the self-governance is attained. In modern society, the clerks and gentry have disappeared. However, the public sphere between the local government and social society is not vanished. The community committee dean, the village Party secretary or dean, still play important roles in linking the country and society. Due to the blurred boundaries between the state and society, the party secretary is appointed by the village party committee,and the election of community committee dean is affected by the government. The public sphere between the local government and society is the distinctive feature of local governance in China, which is different from other countries. In this public sphere, the action subjects include the clerk and gentry in history and social workers and village officials today; the organization evolves from community self-monitoring system of Lijia and Xiangyue to village committee, community committee, and grid management. The policy delivery channel experiences the top-down and bottom-up ways to the pressurized system and mobilization governance. In the past thousands of years, the action parts,organization forms and policy delivery evolve in the history and are rendered as the Chinese paradox. Based on these analyses, this article summarizes that the state and society mix together and overlap in the public sphere which makes the collaboration of local government and society be instructed by the state. At the same time, it is necessary to reduce the administrative influence on the administrative outsourcing system and open the channels to guarantee the local elites and people＇s participation rights. In addition, it needs to reorganize the local society based on the tradition-retrospective and other countries＂ experiences.