统合治理:县域脱贫攻坚的机制创新——基于贵州T县的经验研究

Integrated Governance:Mechanism Innovation of Poverty Alleviation——Based on the Empirical Study of T County,Guizhou Province

既有研究多探讨外部环境如何塑造脱贫攻坚及其动员机制,却没有深入解释脱贫攻坚本身的治理特征和运行机制。本文基于贵州T县的脱贫攻坚实践,将脱贫攻坚的治理结构和治理机制定义为统合治理,认为其是在党政体制基础上,通过党的领导实现对原有科层制的组织重构和多元治理主体的有效统合,在治理结构上形成了“一轴多元”的治理体系,构建了能最大程度激活体制内外力量参与贫困治理的有效模式。统合治理是有助于汲取运动式治理和科层治理优势的组织基础,其通过组织统合、行动统合和督战统合等治理策略,既强调了多元治理主体的合作度,又突出了治理权力集中的可能性,使脱贫攻坚更好地发挥了整体动员、协作执行和治理效能提升的作用。统合治理不仅呈现了党委和政府在脱贫攻坚中的统合功能与重要价值,更凸显出社会、市场和群众等力量在社会治理中的潜能,为县域超常规治理的动力结构和机制提供了一种新的解释路径。

Based on the poverty alleviation practice of T County inGuizhou Province,a definition of“integrated governance”is formulated,which combines governance structure and governance mechanism of anti-poverty.It is believed that this new definition is based on the Party-government system,and it has reconstructed the original administrative hierarchical organization and the integrated multiple governance effectively through the leadership of the Party.And the“multiple one-axis”system of governance on the governance mechanism is formed,which has constructed an effective model that can activate the forces inside and outside the system to participate in poverty management to the greatest extent.It is concluded that integrated governance is a powerful governance which can absorb the advantages of movement governance and hierarchical governance,and it can better play the role of overall mobilization in poverty alleviation through progressive strategies such as organization integration,action integration and supervision integration.Integrated governance not only demonstrates the integrated function and important value of the Party-government in poverty alleviation,but also highlights the potentials of society,market and mass forces in social governance,which provides a new way to explain the dynamic structure and mechanism of super-normal county governance.