统合治理:党建引领社会治理及其对网络治理的再定义

Integrated Governance: Social Governance Led by Party Building and Its Redefinition of Network Governance

作为应对复杂问题的第三种机制,网络治理早已进入各国治理议程。既有网络治理的研究预设是存在一个组织多元、联结紧密和行动能力自主的制度环境,并在此基础上讨论网络相比于科层制和市场制的比较优势,对于网络本身所处的制度环境及其效度则缺乏足够关注。中国基层社会面临松散型制度环境,高效协同的治理网络难以自发生成,但中国具有较健全的党组织体系并在治理中发挥重要功能。在松散型制度环境中,基层党组织发展出统合治理模式,借助“党委统筹的项目制”“基层党组织体系扩展”和“党员骨干下沉”等机制重塑基层社会,并拓展复杂治理的能力。统合治理是网络治理在中国的实现形态,一方面,统合治理具有网络治理的基本要素,强调构建多元组织关系以及组织之间的协作;但另一方面,基层党组织在治理网络中发挥主导作用,其核心是作为政治生活主体的党组织融入治理过程,以党组织能力的强化来统合基层社会。在统合治理模式下,基层党组织支持和培育社会组织的生长,也依托社会组织巩固和推动了其组织发展,强化了国家权力对社会新生空间的覆盖。但这种体制力量的扩展并不在于建立对社会的政治支配关系,而是通过内生化的体制能力激活社会自身的自我调节和运转能力。就此而言,统合治理蕴含着简约治理的逻辑。

As a third mechanism to govern complex societies, network has been widely used in national governance. Existing research on network governance presupposes that there is an institutional environment with multiple subjects, close connections and strong capacity for action, and discusses the comparative advantages of network compared with administrative mechanism and market mechanism on this basis, but lacks of sufficient attention to the institutional environment and effectiveness of the network. China’s grass-root society is facing a loose institutional environment, and an efficient and coordinated governance network is difficult to generate spontaneously. However, China has a sound party organization system and plays an important role in governance. In the loose institutional environment, GRPOs(Grassroot Party Organizations) have developed an integrated governance model, which reshapes the grass-roots society by means of mechanisms such as "the project-based model of Party overall planning", "the expansion of primary-level Party organizations" and "the sinking of Party member resources", so as to enhance the ability of the system to respond to complex governance. Integrated governance is the realization form of network governance in China. On the one hand, integrated governance has the basic elements of network governance, emphasizing the construction of diversified organizational relations and cooperation among organizations. On the other hand, GRPOs play a leading role in the governance network. The core is that the GRPOs, as the main body of political life, directly integrate into the governance process and integrate the grass-roots society with the strengthening ability of Party organizations. Under the integrated governance model, grassroots party organizations support and nurture the growth of social organizations, consolidate and promote their organizational development relying on social organizations, and strengthen the cover of state power on the new space of society. But this expansion of institutional power is not intended to establish political domination over society, but to activate the self-regulation and functioning of society itself through endogenous institutional capacity. In this regard, integrated governance contains the logic of simple governance.