行政化抑或行政吸纳:民生服务下政府参与村级治理策略

Administration or Administrative Absorption:The Strategy of Government Participation in Village-Level Governance in People's Livelihood Services

村级治理是国家治理的重要组成部分,政府以何种策略治理乡村关系到乡村秩序稳定和民生改善。本研究认为,中国乡村治理未曾出现行政化,且治理已渐趋服务民生,即村民自治实行后,政府在“放权”的同时汲取农户经济资源,让处于私域空间的农户承担了一些民生事务,包括公域和共域中的一些公共事务;进入新世纪,尤其在新农村建设启动后,政府加大民生服务下乡力度,并将共域和私域中大量民生事务承接下来。与此同时,基层政府还采用支付“工资”、加强考核等措施引导村干部参与民生服务,使一些村级治理出现疑似行政化特征。但可以肯定的是,“行政化”表象背后是“吸纳”逻辑,政府采用行政吸纳而非行政化策略治理乡村。行政吸纳是政府服务民生的治权变革,尽管它在村级治理实践中存在行政控制村级社会、治理资源过密化等问题,但这是行政化不当造成的,而这些问题完全可以通过进一步规范行政吸纳予以解决。

Village-level governance is an important part of national govermance,and the strategy adopted by the government to manage rural areas is related to the stability of rural order and the improvement of people’s livelihood.This study claims that China's rural govermance has never been administrative and has gradually served people's livelihood.That is,after villagers’self-governance is implemented,the government,while decentralizing,absorbs farmers economic resources and allows farmers in the private domain to undertake some tasks of people's livelihood,including some public afairs in the pub-lic and common domain;since the beginning of the new century,especially since the new rural construc-tion started,the government has stepped up efforts to provide livelihood services to the countryside and undertaken a large number of livelihood tasks in both common and private domains.At the same time,the grassroots government also adopted measures such as paying"salaries"and strengthening assess-ments to guide village cadres to participate in people’s livelihood services,making some village-level governance suspiciously administrative.But certainly,behind the"administrative"appearance is the logie of"absorption".The govermment adopts a strategy of administrative absorption instead of a strate-gy of administration to govern the countryside.Administrative absorption is a reform of the government s authority to serve people’s livelihood.Although it has problems in vllage-level governance practices,such as administrative control of the village-level society and over-densification of governance resourc-es,these problems are caused by improper administration and can be solved by further standardizing administrative absorption.