刚性与弹性:基层治理中制度运作空间的“正式化”再生产——以S省H县的易地扶贫搬迁为例

Rigidity and Elasticity:Reproducing the“Formalization”of Institutional Operation Space in Grass-roots Governance——A case study of the relocation of impoverished residents in H county of S Province

基层治理中制度本身就是具有刚性的,但是在制度的运作过程中往往会出现无法消弭的弹性空间,现实问题是:以往非正式化、非组织化、非合法化的运作方式带来了诸如民众博弈空间过大、政策执行不公平、制度运作变形等问题,构成了当前的治理困境。在此情境下,基层治理产生了在制度实践中增加正式化运作的需求。较之“非正式运作”,“正式化”运作中制度弹性空间的生产从原来的非正式的、任意的、在科层体系中处于低位的方式,嬗变为一种正式的、程序化的、在科层体系中处于高位的方式。正式化运作既要坚守制度的刚性原则,也要在具体运作过程中重新释放弹性空间,因此,其并非是对“非正式运作”的取代,而是一种补充与延续。本案例中,通过制度创制“透明化”、让步规则“程序化”和加压底线“权威化”这三种方式使易地扶贫搬迁制度运作的弹性空间以一种更为正式化、组织化、合法化的形式不断生产出来,同时展现了基层治理中国家与社会相互交织、相互形塑的过程。

In the grass-roots governance,the institution itself is rigid,but in the process of the operation,there is often an elastic space inevitable.In reality the operation mode,unofficial,unorganized and illegal,has brought about such problems as more game space for the public,unfair policy implementation and institution operation’s deformation,which constitute the current governance dilemma.In this case,it is necessary for grass-roots governance to increase the formal operation in institution practice.Unlike“informal operation”,the elastic institution space produced in the“formalized”operation changes from the originally informal,arbitrary and low-level bureaucratic way to a formal,procedural and high-level one,which not only adheres to the rigid principle of the institution,but also re-releases the elastic space in the specific operation process.The case studied in the paper indicates that the transparency of institution innovation,the routinization of concession rules and the authority of the bottom line thinking have contributed to the re-production of an elastic institutional operating space to relocate the impoverised residents in a formal,organized and lawful way.It is in this process that the state and society interwine and shape with each other in the grass-roots governance.