制度建设中的运动式治理——对运动式治理的再思考

Campaign Governance against the Background of Institution Building --Rethinking the Role of Campaign Governance

运动式治理这一现象近年来受到社会科学界的关注。许多学者对其进行了批评,认为这种治理手段表明常规治理手段的低效或缺失,而其本身成本高昂且收效有限,因而并不可取。一套有效的治理机制应该减少或避免运动式治理。本研究从组织理论的视角出发,认为在一个制度建设的过程中,运动式治理是常规治理机制得以演进和不断完善的基础,具体体现为：在外部环境变迁导致的原有常规机制失效的背景下,运动式治理是探索和建立新的、更为有效的常规治理机制的重要的工具。针对改革开放以来土地政策演变的实证研究证实了以上观点,20世纪80年代以来的四次运动式清理在土地管理领域的制度建设过程中发挥了重要作用。以往针对运动式治理的批评基本忽视了运动式治理的背后是制度建设的努力与成效。

As a distinct phenomenon, governing by launching campaigns （campaign governance） is unlike governing by bureaucratic organizations. The former campaigns are designed to replace and rectify ordinary bureaucratic government processes and routines that fail to deliver effective governance. There has been much criticism about the abuse of campaigns by the Chinese Communist Party and the Chinese government. However, as part of an evolutionary process, launching campaigns could be an effective tool to help policy adapt to the ever-changing environment. Empirical research on the evolution of Chinese land policy during the reform and opening period supports this argument. The results show that neither of these criticisms adequately consider the role played by such campaigns in building effective government, nor are these criticisms effectively supported by the empirical evidence.