类体制身份:作为基层政府建构自主性的意外后果——以上海市奉城镇政府为例

Quasi-system Identity as an Unexpected Consequence of Striving for Autonomy of the Grassroots Government:A Case Study of Fengcheng Township Government in Shanghai as an Example

本文认为出现在基层政府内部的多种“身份”,不同于传统的“社会性身份”和“体制性身份”,是一种新的“身份”现象,本文称之为“类体制身份”。以上海市奉城镇政府为例,本文梳理了奉城镇政府内部多种“身份”的形成过程。本文认为,“类体制身份”在基层政府内部的产生,逻辑上可以分为两个阶段:一是多层级上级政府约束下的基层政府人员扩张,导致具有多种身份的人员集聚在基层政府内部这一特定场域;二是基层政府混编混岗导致人员身份意识强化。本文认为,“类体制身份”本质上是基层政府在多层级上级政府的压力型体制及社会治理转型所导致的治理任务增多的背景下,建构基层自主性的意外后果。在中国多层级的政府组织中,保障乡镇一级基层政府的自主性,对于完善国家治理体系、实现有效治理具有重要意义。

This article holds that the“quasi-system identity”emerging in the grassroots government is different from the traditional“social identity”and“system identity”.It is a new“identity”phenomenon,which is termed“quasi-system identity”in this study.This article takes Fengcheng Township Government in Shanghai as an example,and reviews the formation process of various“identities”in Fengcheng Government.The study considers that the emergence of this“quasi-system identity”in the grassroots government experienced two logical stages:one is the expansion of grassroots government personnel under the constraint of multi-level superior governments,which leads to the concentration of people with multiple identities in the specific field of grassroots government;the other is the strengthening of the awareness of different personnel identity caused by the mixed arrangement of grassroots government personnel.The study argues that“quasi-system identity”is essentially the unexpected consequence of the grassroots government’s striving for autonomy under the background of increasing governance tasks caused by the pressure-type system of multi-level superior governments and social governance transformation.In China’s multi-level centralized government organizations,it is of great significance to guarantee the grassroots autonomy at the township level for improving the national governance system and achieving effective governance.