行政包干制:乡镇非正式治理的常态化机制

Administrative Contract System:the Normalization Mechanism of Township Informal Governance

基于科层体制和乡土社会的二元互动,乡镇政权存在着大量的非正式运作和策略性行为。行政包干制作为一种制度设置,通过社会性资源的制度化整合,实现个体性策略向制度化动员转变、应急式治理向常规性治理转变,行政包干制成为乡镇非正式治理的常态化机制。在行政包干制中,通过目标责任人激励实现基层组织动员,基层党政体系为社会性动员提供组织程序和行动规则;通过责任包干防止基层治理矛盾扩大化,基层干部具有将矛盾遏制在萌芽状态的内生动力。乡镇非正式治理的常态化即乡村治理秩序的日常化,对国家基础性权力建设具有实质性意义。

Due to the dual interaction of bureaucratic system and rural society,a lot of informal operation and strategic behavior exist in township government.The system of administrative contract is a kind of institutional setting.Through the institutionalized integration of social resources,the transformation of individual strategy to institutionalized mobilization and the transformation of emergency governance to conventional governance are realized.The system of administrative contract becomes the normalization mechanism of informal governance in villages and towns,in which the mobilization of grass-roots organizations is realized through the encouragement of the target responsible person,and the grass-roots party and government system provides organizational procedures and action rules for social mobilization;To prevent the expansion of conflicts through responsibility contracting,grass-roots cadres have the endogenous power to nip the conflicts in the bud.The normalization of township informal governance,that is,the normalization of rural governance order,is of substantial significance to the construction of national basic power.