“条块并举”发包制下的基层治理——以T区乡镇政府的精准扶贫工作为例

The Grassroots Governance under the Subcontract by both the Systems and Regions:A Case Study on the Accurate Poverty Alleviation in the Township Government in T District

【问题】有关中国基层政府治理实践的已有研究提出了行政发包制(适用于块块维度)和“控制权”理论(适用于条条维度)两种视角,但实践中的基层政府会同时承接来自上级政府和各个部门的发包。近年来,中央启动的一系列改革举措改变了既有发包制的运行。那么,如何概括变化之后的基层政府治理实践呢?【方法】以T区所辖乡镇的精准扶贫工作为个案,在实地调查和深入访谈的基础上,详细呈现了当下基层政府治理的新特征。【发现】中央层面近年来发起的一系列改革举措从三个维度改变了发包制的运行,它们包括行政权限的分配、内部控制和检查验收机制的运行,以及激励机制的设置;这就导致了既有理论模型与现实的偏离。【结论】论文提出了一个新的“条块并举”式发包制的分析框架。这一框架可以很好地概括近年来基层政府治理实践的新特征,并有助于我们理解精准扶贫相关实践中的矛盾现象。

Motivation:The administrative subcontract(from the regional dimension)and the“control rights”theory(from the system dimension)—two typical research models of grassroots governance in China—are based on the integrated perspective.However,the grass-roots governments,in practice,undertake subcontracts from higher governments and government departments.In recent years,a series of reforms,initiated by the central government,have changed the features of the subcontract.How can those post-reform characteristics be illustrated?Methodology:The study analyzes the implementation of poverty alleviation in the township government in T District as a case.The article demonstrates the new features of grassroots governance based on field investigation and in-depth interviews.Findings:The analysis shows the reforms have changed the authority relations,internal controls,and inspection mechanisms.The setting of incentive mechanism in administrative subcontracts causeda deviation between the existing theoretical model and reality.Conclusion:The study frames a new model of administrative subcontracts by both systems and regions,which can summarize the changes in subcontracting.The new framework can also explain some contradictions related to the undertaking subcontracts.