从文书行政到文件政治:破解我国规模治理难题的内生机制

From Document Administration to Document Politics: Endogenous Mechanism to Solve Problem of Scale Governance in China

中央权力如何破解由于行政区划和科层制所产生的治理难题,即维护政令统一问题,一直是超大规模国家治理面临的重大课题。我国从秦朝开始便通过统一的文书话语体系对规模治理进行了积极探索,此后历代王朝均在此基础上不断完善文书行政制度,以更好地发挥中央治理效能。新中国成立后,国家性质和治理体制发生了根本变化,但文书行政却得到了沿袭和发展,并逐渐演化为文件政治。文件政治在运行过程中呈现出的意志统一、规则统一、思想统一、目标统一、行动统一等政治功能是维护政令统一的具体体现,为破解国家规模治理难题提供了制度保障。

How to solve the governance problems caused by administrative divisions and bureaucracy, has always been a major issue faced by super-large countries. Since the Qin Dynasty, China has actively explored the scale governance through a unified document system. Since then, all dynasties have continuously improved the document administration system on this basis, in order to release governance efficiency. After the founding of the People’s Republic of China, the nature and governance system of the country have changed fundamentally, but the document administration has been inherited and developed, and gradually evolved into document-politics.The political functions of document politics in the process of operation, such as unified will, unified rules, unified goal, are the concrete embodiment of maintaining the unity of government order, and provide institutional guarantee for solving the problem of national scale governance.