行政调适性:理解乡镇“组线治理”机制创新的一个分析视角——基于湖南省C镇的案例研究

Administrative Adaptability: An Analysis Perspective of Understanding the Institutional Innovation of Zu-Xian Governance in Towns and Townships:A Case Study of C Town in Hunan Province

从行政调适性的分析视角来看,转型期乡镇的治理逻辑与运行机制表现为国家权力深度介入与一线治理有效的双向调适过程。近年来,国家逐步调整纵向的权力分配结构,试图自上而下地规制基层治理体系,依托条线持续输入工作任务,形塑了基层“多中心工作”的治理格局。然而,压力密集传导并未提升乡镇治理效能,反而强化了行政体系对政治动员的依赖,造成基层治理体系刚性化的转型困境。为了应对中心工作扩大化压力、提升行政合理化程度,乡镇政府推动“组线治理”改革实践,通过划分组线设置、配备组线干部、包干组线责任和激励组线动员,再造乡镇科层体制的权力运行模式,对行政资源进行常态化激活。“组线治理”调适了压力体制与常态动员、资源限制与治理有效、一线治理与乡镇调度间的张力,映射了乡镇治理机制创新的行政调适性维度,是基层治理现代化的可行路径。

From the perspective of administrative adjustment, the governance logic and operating mechanism of towns and townships in the transitional period have been manifested as a bi-directional adjustment process between the government’s deep intervention and the effectiveness of frontline governance. In recent years, China has gradually adjusted the vertical distribution structure of power, tried to regulate the grassroots governance system from top to bottom, which relied on the line to continuously input political tasks, and shaped the multicenter task pattern at the grassroots level. However, the intensive transmission of pressure did not improve the efficiency of town and township governance. Moreover, it strengthened the reliance of the administrative system on political mobilization, which has resulted in a grassroots governance dilemma of the rigid pressure system. In order to cope with the pressure of central task enlargement and improve the degree of administrative rationalization, town and township governments promote the Zu-Xian governance reform. This reform reconstructs the power operation mode of the town and township bureaucratic system and normally activates the administrative resources by dividing the Zu-Xian setting, appointing Zu-Xian officials, contracting Zu-Xian responsibilities and encouraging Zu-Xian mobilization. Zu-Xian governance adapts to the tension between the pressure system and normal mobilization, resource restriction and governance effectiveness, frontline governance and town and township dispatching. Zu-Xian governance includes the administrative adaptability dimension of town and township governance mechanism innovation, which is the feasible path for the modernization of grassroots governance.