基层治理中的过度执行: 成因、危害与对策 以街头官僚为例

The Causes,Hazards and Countermeasures of Excessive Implementation in Primary-level Governance:A Case Study of Street-level Bureaucrats

街头官僚作为基层治理场域中的一线治理主体,对其治理实践的高标准、严规范和效能化,是推进基层治理体系和治理能力现代化的现实需要。在制度结构、组织目标、复杂环境、资源禀赋、利益考量、能力素质等因素的综合影响下,街头官僚的自由裁量执行运作一定程度上无法用统一的标准予以规范,现实中呈现为差异化执行类型。自由裁量权的治理权限和运作方式的“度”难以有效把握,容易失控异化为治理的过度执行。这一问题隐含着其他危害:在微观层面,造成街头官僚执行公信力下降;在中观层面,削弱地方政府治理权威;在宏观层面,影响国家认同。因此,应通过合理举措使街头官僚的自由裁量权转向制度化、规范化、合理化,既要保障执行权的自主效能,又要对其进行一定程度的规约控制。

As the front-line governance subject in the primary-level governance field,street-level bureaucrats are faced with the requirement of high standard and efficiency for governance practice,which is the realistic need to promote the modernization of primary-level system and capacity for governance.Under the comprehensive influence of institutional structure,organizational goals,complex environment,resource endowment,interest consideration,ability and quality and other factors,to some extent,the discretionary implementation of street-level bureaucrats can’t be regulated by a unified standard,and in reality it is presented as differentiated implementation.It is difficult to effectively handle the governance authority and operation mode of discretion,therefore it is easy to lose control and be alienated into excessive implementation of governance.This problem implies other hazards:at the micro level,it reduces the public confidence of the street-level bureaucrats;at the meso level,it weakens the governance authority of local governments;at the macro level,it affects national identity.Therefore,the discretion of street-level bureaucrats should be institutionalized,standardized and rationalized through reasonable measures.It is necessary to ensure the self-efficacy of implementation and control it to a certain extent.