贫困治理视域下的基层行政包干制

The Grass-roots Administrative Subcontract under the Vision of Poverty Governance

基层行政包干制是脱贫攻坚中一种重要的非正式制度。在委托—代理框架下,地方政府以“定点包干”的方式建立起(省)市县乡村的行政包干体系,通过对不同层次进行隐性授权,以部门内部流动和条上流动正向激励基层干部,且辅之以约谈、召回、撤职等负向约束,在压力型体制下实现了超常规动员。基层行政包干制的核心在于将责任落实到个人,以“块”的地方权力,统合平级的“条”和下级的“块”,高位推动项目、人才、资金和政策精准下沉到基层,实现了国家、市场和社会的全面参与。但体制内的张力与矛盾,也容易激化包干主体之间的矛盾,同时部门包干导致扶贫绩效差异。脱贫攻坚中基层行政包干制的提出,拓展和延伸了行政包干制适用范围,修正和完善了行政包干制理论,为脱贫攻坚与乡村振兴有效衔接提供机制借鉴。

The grass-roots administrative subcontract is an important informal system in poverty eradication.In the framework of authorized-agents,local government set up in the form of“fixed lump sum”(province)cities and counties in rural administrative responsibility system,through the different levels of authorization and on internal flow and the flow of positive incentives to department cadres at the grassroots level,supplemented by interview,recall,removed negative constraints,and under the pressure type system to achieve the extraordinary mobilization.The core of the grass-roots administrative subcontract is to assign responsibility to individuals.With the local power of“blocks”,it integrates the“rules”at the same level and the“blocks”at the lower level.The high level promotes the accurate sinking of projects,talents,funds and policies to the grassroots level,thus realizing the full participation of the state,market and society.However,the tension and contradiction within the system itself also tend to intensify the contradiction between the main body of the poverty alleviation,and at the same time,performance differences in poverty alleviation are caused by the responsibility of departments on a contract basis.The proposal of grassroots administrative subcontract in poverty alleviation expands and extends the scope of application of administrative contract system,revises and improves the theory of administrative contract system,and provides a mechanism for reference for the effective connection between poverty alleviation and rural revitalization.