村庄公共品的“赋能式供给”及其制度嵌入——以两村用水户协会运行为例

Empowerment Supple of Rural Public Goods Supply and Its Institutional Embeddedness——Case Study of Water User Associations in Two Villages

围绕村庄公共品何以有效供给,鉴于政府包办与自主合作两种类型的运行困境,当前地方实践中出现了一种"赋能式供给"的创新思路。本文在系统归纳其基本理念和制度化形态基础上,以福建与广西两个村庄用水户协会的案例求同比较、观察制度运行。研究发现:基于"社区赋能"多层次链条形成了在消费单元、运行规则、组织载体与资源配置等方面特定的制度化形态;制度赋能效果主要取决于能否有效嵌入地方性场域,否则容易陷入组织替代或悬浮等运行困境;在地方性场域中与权力主体的竞合关系、与地方性规则的融合状况以及与社区资源依赖的疏密程度,是影响制度嵌入的核心机制。本研究基于已有制度探索首次提炼出村庄公共品的"赋能式供给"方式,并对其理念、制度设计与运行过程展开系统讨论。同时关注"制度嵌入"因素以完善政府干预与社区合作之间的运行链条,倡导地方政府转变科层化或发包制的治理方式,以定制化和持续性的政策引导推动赋能过程。

The objective of this paper is to systematically generalize the governing idea, institutional configurations and operation process of "empowerment supple", which is a new supply form of rural public goods in some Chinese local policies. An exploratory two-case study following the method of agreement, comparing the practical operation between Water User Associations in Village L, Yongchun County, Fujian Province and Village D, Lingshan County, Guangxi. The analysis reveals the following. Firstly, based on the multi-level chain of "community empowerment", this type of institutions has special form combination in the aspects of consumption unit, operation rules, organization form and resource allocation. Secondly, the empowerment effect of the institution largely dependents on whether it can be effectively embedded in the local field. Otherwise, it is easy to fall into the dilemma of organization substitution or suspension. Thirdly, some factors in the local field have key impacts on the embedded status of empowerment institutions, such as the competitive relationship with existing governing subjects, the integration with indigenous conventions and cognitions, and the density of community resource needs. The key limitation of the study is that the main conclusion is based on limited cases collected so far, in need of more empirical materials to inspect in the future. the conception of "empowerment" originated in the social work profession in western country. Another difficulty is how to localize the theory in Chinese local governance field. The systematical summary provides a new supple mode of rural public goods for local governments. And the empirical research illustrates that local governments should change the conventional paths like bureaucratic or mobilized way into customized and continuous guidance to run the empowerment intuitions. Based on the existing local exploration and practice, this study extracts the approach of "empowerment supple" in rural public goods and systematically summarized its governing idea, institutional characteristics and operational process. Meanwhile, it also introduces the embeddedness perspective to analyze key factors of the subsistence of empowerment institutions, so as to complete the operational chain between external intervention and internal cooperation.