顶格管理、基层形式主义与整体性智治——基于对N市Q区的考察

Management by Upper Limit, Grassroots Formalism and Holistic Intellectual Governance:An Investigation into Q District in N City

在全面推进基层减负的时代背景下,基层形式主义整治工作已成为基层治理研究中被广泛关注的焦点之一。“顶格管理”根植中国基层治理语境,使科层体制始终处于“理性主义”的运行逻辑之中。然而,在基层治理实践中,“顶格管理”随之带来的治理压力与基层治理能力之间呈现出非均衡状态。在“避责心理”的催化下,“策略主义”转向风险面,“顶格管理”追求的理念预期也发生了价值偏离。基层形式主义的生成,表现为理念形式主义、功能形式主义、结构形式主义、机制形式主义和技术形式主义。通过构建整体性五维治理模型——“理念—功能—结构—机制—技术”以实现整体性智治,变革“顶格管理”治理方式,从根源上破解我国基层治理中出现的形式主义问题。

Under the background of comprehensively promoting grassroots burden reduction, the rectification grassroots formalism has become one of the high focuses in grassroots governance research. "Management by upper limit" is rooted in the context of Chinese grassroots governance, so that the bureaucratic system has always been in the operation logic of "rationalism". However, in the practice of grassroots governance, a disequilibrium between the governance pressure and grassroots governance capacity tends to result from "management by upper limit". Under the catalysis of "responsibility avoidance", "strategism" turns to the risk side, and the ideals and expectations pursued by "management by upper limit" also deviate from value. The formation of grassroots formalism is manifested as idea formalism, functional formalism, structural formalism,mechanism formalism and technical formalism. Through constructing a five-dimensional holistic governance model that integrates the "idea, function, structure, mechanism, and technology", the holistic intellectual governance can be achieved, the governance method of "management by upper limit" can be changed, and the formalism problems in Chinese grassroots governance can be resolved from the source.