断续型治理:可持续性维度下基层治理模式的困境研究——基于武陵山区R镇的基层治理实践

Intermittent Governance: the Problems of Sustainable Basic-Level Governance——Based on the Study of R Town in Wuling Mountain Areas

现代公共行政管理改革旨在构建规范化、现代化的行政体制,但在治理实践中产生了一系列非预期性后果。压力型体制将基层政府纳入到以检查和考核为主要特征的总体性制度环境中,这不仅催生了其在政策执行过程中的诸多策略性应对手段,且无形中催生出一种基于治理实践的断续型治理模式。在断续型治理模式中,基层政府为应对阶段性“中心工作”会在运动模式和常规模式间不断切换,这已然成为基层治理实践的一种总体性特征。基于国家级特困地区武陵山区R镇的基层治理实践提出“断续型治理”概念,正是将学者们颇为关注的“运动型治理”和常规治理都纳入基层治理研究视野之中,从整体上关注基层政策执行的周期问题,才能更为客观、准确、全面地把握基层治理的特征及其行动逻辑。推进治理体系和治理能力现代化转型必须以断续型治理模式为突破口和切入点,对基层治理模式进行系统性改进,以期在治理实践中构建一套具有整体性、连续性和前瞻性的公共治理的可持续性长效机制。

The goal of reforming public administration is to build a modern standardized system.However,in practice a series of unexpected problems have occurred.The pressure-oriented policy brought the basic-level governments into conformity with the an inspection-and-evaluation mechanism.When it was implemented,an intermittent model of governance,together with many strategic measures,was produced,according to which basic-level governments would switch alternatively between“movement mode”and“conventional mode”to deal with periodic“central tasks”.The model has become a general feature of basic-level governance.In this study,the practice of R town in Wuling Mountain Areas will be examined.And it is shown that“intermittent governance”could encompass both“the mode of movement governance”and conventional governance.It can not only help to solve the periodic problems that beset the implementation of policies at basic levels,but can also exhibit more clearly and more objectively the features and practical logic of basic-level governance.It is proved that intermittent governance model should be adopted as the beginning step and break-through point for the modernization of governance system and improvement of governance.It can also be the means by which a consistent,continuous and long-term mechanism of public governance can be established.