规划性社会变迁的地方运作策略与实践困境——基于“整村推进”扶贫开发的案例分析

Local Operation Strategy and Practical Dilemma of Planning Social Change——A Case Study of Development-oriented Poverty Reduction Based on “Whole Village Advancement”

规划是我国政策过程和社会变迁的重要机制。学术界对于规划的研究主要集中在中央的起草制定阶段,地方实践操作阶段的讨论还较少涉及。中国发展规划的编制与实施过程中,扶贫开发是重要的实践领域。文章基于一个"整村推进"扶贫规划案例的考察,探讨发展规划的地方运作策略及其实践困境,从而延展出对完善发展规划机制的讨论。研究表明,"作为理念的规划"和"作为实践的规划"是一对无法分割却又颇具张力的命题,发展规划实践运作过程中的条线化控制策略、组织化动员策略以及简单化操作策略虽然自上而下推动了规划从理念到实践的快速落实,但随之产生的规划制定的理想化陷阱、规划实施的形式化风险以及规划落地的负激励效应等现实困境则限制了规划的实践效果。破解这一实践难题,必须返回到规划作为一种社会变迁机制的本质属性层面寻求答案,将规划视为具有系统复杂性、长远渐进性和动态调整性的政策过程。

Planning is an important mechanism for China’s policy process and social changes. The academic research on planning is mainly focused on the drafting stage,and the discussion of the practical operation stage is less involved. Development-oriented poverty reduction is an important practice area in the formulation and implementation of China’s development planning. Based on the analysis of a micro case of the poverty alleviation planning,this study explores the local operational logic of development planning and its practical dilemma,thus extends the discussion on improving the development planning mechanism. This study shows that"planning as a concept"and"planning as a practice"are always a pair of inseparable but rather tension proposition. The line control strategy,organized mobilization strategy and simplified operation strategy have promoted the rapid implementation of planning from concept to practice. However,the practical difficulties such as the idealized trap of planning,the formalism risk of implementation process and the negative incentive effect after implementation limit the implementation effect of planning. To fundamentally solve this practical problem,we must return to the essential attribute of planning as a social change mechanism. Planning is policy process with system complexity,long-term and dynamic adjustment.