农村基层治理:科层制抑或反科层化?——基于桂南Q市“联镇包村”制度运作的调研分析

Rural Primary-level Governance:Bureaucratic or Anti-Bureaucratic System?——Research on the“Township Officials Assigned to Village Leadership”System in City Q,Southern Guangxi

农村基层治理是国家治理体系的重要组成部分,也是各级政府提升社会治理能力的重要抓手。以“包发展、包党建、包稳定”为主导的联镇包村制度是地方政府回应国家加强农村基层治理的一项制度安排,在制度运行中显现出如下特点:组织高层依赖权威治理,化解政策执行阻力;委派单位依赖代理治理,缓和基层社会矛盾;驻村干部依赖指标治理,提高主体责任意识的科层制路径依赖特性。在压力型体制下,不同行动者的行动逻辑显现出差异化:组织高层由“权威动员”向“参与互动”转变;委派单位由“分利失序”向“合作共治”转变;驻村干部由“被动回应”向“主动服务”转变。这种反科层化的运作方式推动联镇包村制度运行,以此提升基层自治组织的治理能力,进而推动农村基层走向“善治”。

Rural primary-level governance is an important part of the national governance system,and it is also an important starting point for government at all levels to improve the social governance capacity.The Township Cadres Assigned to Village Leadership system led by“economic development,party construction,social stability”is an institutional arrangement for local governments to respond to the state’s efforts to strengthen rural grassroots governance.In the operation of the system,it shows the following characteristics:the upper echelon relies on authoritative governance to resolve the resistance of policy implementation;the appointed unit relies on agency governance to ease social contradictions at the grassroots level;the cadres sent to work in villages by higher governments rely on index governance to improve the path dependence characteristics of the bureaucratic system of subject responsibility consciousness.However,under the pressurized system,the action logic of different actors is dissimilated:the upper echelon has changed from“authority promotion”to“participatory interaction”;the appointed units have changed from“distribution and disorder”to“cooperative governance”;the cadres sent to work in villages have changed from“passive response”to“active service”.The anti-bureaucratic operation mode promotes the operation of the township officials assigned to village leadership system,so as to enhance the governance capacity of primary-level autonomous organizations and thus achieving“good governance”in rural primary-level society.