中国农村基层治理的困境与“浑沌”的治理逻辑

The Dilemma of Grassroots Governance in Chinese Rural Areas and the Governance Logic of “Chaos”

国家治理方式现代化的关键标志是“规范化”,最核心特征是基于“形式知识”的边界划定。“浑沌”作为对中国农村基层治理内在机制的隐喻,即一种以“隐性知识”为前提的整体、连续、流动、统合的状态。在集体主义时期,农村生产生活的“浑沌”环境与治理方式的“浑沌”相互适应,社会目标可以被控制和诱导到与国家目标相融合的状态。1980年代开始推进的基层治理方式规范化建设,逐渐打破了“浑沌”状态,在地方社会出现了大量与国家目标相对抗的矛盾冲突。基层治理方式规范化建设以提升基层政权合法性为目标,却降低了基层政权的合法性,然而,国家依然通过一系列行政控制机制驾驭地方行政目标。在规范化及其后果与国家目标控制机制的张力中,农村基层治理陷入困境。当“浑沌”的外在环境没有发生系统性变化时,在基层社会的治理现场,自上而下的“规范”若没有造成更多的社会冲突和不满,则必然在吸纳“隐性知识”的一线行政操作中,促生新的“浑沌”。

The key symbol of “modernization of state governance methods” is “standardization”,and the core feature is the boundary demarcation based on “formal knowledge”.In the period of collectivism,the chaotic environment of rural production and life and the chaos of governance methods adapt to each other,and social goals can be controlled and induced to merge with national goals.The standardization of grassroots governance methods that began to advance in the 1980s has gradually broken the chaotic state of grassroots administration and produced a large number of contradictions and conflicts in the local society that are opposed to national goals.The standardization of grassroots governance is aimed at improving the legitimacy of grassroots political power,but it just reduces the legitimacy of grassroots political power.However,the state still maintains an effective control of local administrative objectives through a series of administrative control mechanisms.When there is no systematic change in the external environment of chaos,the top-down “normative” will inevitably absorb “hidden knowledge” if it does not cause more social conflicts and dissatisfaction.In the first-line administrative operation,a new chaos is promoted.