过密治理与去过密化:基层治理减负的一个解释框架

Involution and De-involution:An Explanatory Framework for Governance Burden Reduction at the Primary Level

后税费时代,随着国家正式权力对基层社会直接、主动且密集性的介入,基层逐步从“无为而治”的简约型治理向“应接不暇”的过密化治理转变。治理模式的变革在引致边际治理效能日趋递减的同时,也催生了基层的形式主义、负担过重等弊端。过密治理在具体实践中产生了事务过密、规则过密、督查考核过密和责任过密等现象。结合过密化理论,从任务结构、治理路线、考核取向和权责配置四个维度建构过密治理的分析框架,可以发现,政治任务泛化、政策刚性、无序督查考核及权责失衡等因素共同造成了基层治理的过密化和负担过重。立足乡村振兴的新发展阶段,推动基层减负,应通过强化政治任务话语的使用规制、提升县级政策的转化空间、统筹规范督查考核、建立健全基层权责对等机制等方式实现基层治理的去过密化。

In the post-tax era,with the direct,active and intensive intervention of the formal power of the state in the primary-level society,the governance at the primary level has gradually changed from the simple model of"governing by doing nothing that goes against nature"to the governance involution of"being overwhelmed".The reform of the governance model has led to the diminishing effectiveness of marginal governance,but also given rise to the practice of formalities for formalities’sake and excessive burden at the primary level.In specific practice,governance involution has produced involuted affairs,involuted rules,involuted supervision and assessment,and involuted responsibilities.Combined with the theory of involution,the analysis framework of governance involution is constructed from the four dimensions of task structure,governance line,assessment orientation and power and responsibility allocation,and it can be found that factors such as generalization of political tasks,policy rigidity,disorderly supervision and assessment,and imbalance of power and responsibility have jointly caused the involution and overburden of primary-level governance.Based on the new development stage of rural vitalization,to promote the reduction of the burden at the primary level,we should achieve the deinvolution of primary-level governance by strengthening the use and regulation of political task discourse,improving the transformation space of county-level policies,coordinating and standardizing supervision and assessment,and establishing and improving the mechanism of equal rights and responsibilities at the primary level.