调适型政策试点:基于“行政控制-社会动员”视角下的试点分析——对四川省战旗村“集体经营性建设用地入市”的田野考察

Adjustment Pilot:An Analysis of Policy Pilot Based on the Perspective of“Administrative Control-social Mobilization”——A Field Study of Zhanqi Village in Sichuan Province

政策试点作为一种渐进式改革方式,成为中国在推行新政前的一种常见做法。通过对四川省农村集体经营性建设用地入市试点村战旗村的案例考察,并将之置于“行政控制-社会动员”的双重互动视角中进行解读,可以清晰地看到中国公共政策试点中宣传、政策倡导和规划等较强的科层控制,又可以看到“准官僚的民众”“党员执行者”和组织参与等社会动员。研究表明,集体经营性建设用地入市改革的政策试点已经与基层社会治理形成了有效嵌套,层级控制与社会动员相互融通,中央与地方权力共享。行政控制与社会动员同时出现在该试点中,形塑出一种新型的政策试点类型,即“调适型政策试点”。这一基于政策试点动态过程的发现,可以引发对当代中国社会治理本质等的重新思考,并可进一步解释行政控制与社会动员互动视角下中国试点的特殊性。

As a kind of gradual reform,policy pilot or experiment has become a common way to implement new policies in Sichuan.Through the field study of Zhanqi as a pilot village for involving China's rural collective construction land for market commercial purposes and the interpretation of the findings in the double interactive perspectives of“administrative control and social mobilization”,we can see the strong hierarchical control of publicity,policy advocacy and planning in China's public policy pilot experiment and we can also see the social mobilization of“quasi-bureaucratic people”,“Party members performers”and organizational participation.The research shows that the policy pilot of the market-oriented reform of collective commercial construction land has been effectively nested with grass-roots social governance,and hierarchical control and social mobilization are integrated with each other,and power is shared between the central and local authorities.Administrative control and social mobilization appear simultaneously in this pilot,forming a new type of policy pilot,that is,“debugging policy pilot”.This discovery,based on the dynamic process of policy pilot,can trigger a rethinking of the nature of“social governance”in contemporary China,and further explain the particularity of China's pilot case from the perspective of the interaction between administrative control and social mobilization.