新时期乡村治理的“半正式行政”:生成逻辑与实践机理

“Semi-formal Administration”of Rural Governance in the New Era and Its Influence

在国家治理体系与治理能力现代化建设背景下,地方治理体制与制度的强势建构带来行政权力向上集中和治理压力向下聚集,促使乡镇政权通过嵌入性组织建构下的半正式组织设计、半正式制度安排及帮包制机制实践等,形塑起新时期的乡村“半正式行政”治理模式。这种“半正式行政”不同于黄宗智的概括,具有自身的生成逻辑与实践机理。从实践后果看,它虽有助于弥合行政与自治之间的张力,但也易带来行政制度吸纳自治制度与自治事务涌入行政渠道的“行政吸纳自治”问题,需要地方政府在规章与文件中重新明确半正式组织的政策指导、行政监督、服务协助与配合治理等职能。新时期乡村“半正式行政”考察,是对传统“半正式行政”研究的理论拓展,也是对基层治理组织、制度与机制研究的丰富。

Under the background of the modernization construction of national governance system and governance capacity,the strong construction of local governance system and system brings the upward concentration of administrative power and the downward concentration of governance pressure,prompting the township government to shape the rural“semi-formal administration”governance mode in the new era through the semi-formal organization design,semi-formal institutional arrangement and the practice of the system of helping and contracting mechanism under the construction of embedded organizations.Although this kind of“semi-formal administration”is helpful to bridge the tension between administration and autonomy,it also easily leads to the problem of“administrative absorption of autonomy”caused by the absorption of autonomy system by administrative system and the influx of autonomous affairs into administrative channels.It requires local governments to redefine the functions of semi-formal organizations such as policy guidance,administrative supervision,service assistance and cooperative governance in rules and documents.The investigation of rural“semi-formal administration”in the new era is not only a theoretical expansion of the traditional“semi-formal administration”research,but also a enrichment of the research of grass-roots governance organization,system and mechanism.