基层考核“口袋效应”的形成、风险与规制——基于督考权扩张的分析

Formation,Risk and Regulation of"Pocket Effect"in Grassroots Assessment--An Analysis Based on the Expansion of Supervisory Power

作为一种容易被忽视的隐性现象,政府考核“口袋效应”在基层减负进程中应得到充分重视,考核“口袋效应”的负面风险在一定意义上构成基层减负实效反弹的关键性因素。基于督考权扩张的理论视角,围绕督考权“价值性和工具性”、“权利性和义务性”与“强制性和公利性”的解释框架,基层政府考核“口袋效应”的形成逻辑可归结为“条件—环境—推力—塑形”过程,其负面风险表现为引致基层加压式考核泛滥、背离督查考核的制度初衷、陷入基层减负矛盾的循环、侵蚀政府权力均衡的基础。为防范基层考核“口袋效应”演变为督查检查考核泛滥,需要从系统性规制考核“口袋效应”着手,实现基层督考价值取向的转型、理顺基层治理权责利结构关系、规范控制督考权的边界和限度、提升督考实践应用的转化能力、构建基层督考的申诉救济机制,从而扎实有效保障基层减负进展及推进基层治理现代化进程。

As a hidden phenomenon that is easy to be overlooked,the"pocket effect"of government assessment should be fully recognized in the process of reducing burden for grassroots organization.Negative risks of assessment with"pocket effect"constitutes the key factor for the rebound of the actual effect of grassroots burden reduction in a certain sense.Based on the theoretical perspective of the expansion of supervisory power,and around the interpretation framework of"value and instrumentality","right and obligation"and"compulsory and public interest"of supervisory power,the for-mation logic of the"pocket effect"of grassroots government assessment can be summarized as the process including""condi-tion-environment-thrust-shaping",and its negative risks are manifested as the proliferation of grassroots pressurized as-sessments,deviating from the original intention of the supervision and assessment system,falling into the cycle of grassroots burden reduction contradictions,and eroding the basis of government power balance.In order to prevent the"pocket effect"of grassroots assessment from evolving into the proliferation of inspection and assessment,it is necessary to start with the systematic regulation of the"pocket effect"of assessment,so as to realize the transformation of the value orientation of grassroots supervision,sort out the structural relationship between the rights and responsibilities of grassroots governance,standardize and control the boundaries and limits of supervisory power,improve the transformation ability of supervision practice and application,and build a grievance relief mechanism for grassroots supervision.These measures can solidly and effectively ensure the progress in reducing burden for grassroots organizations and promoting the process of grassroots gov-ernancemodernization.