流失与再造——基层治权修复的数字化路径研究

Loss and Reconstruction——A Study on the Technical Restoration of Primary-level Governmental Authority

要转型时期基层政府职能重心从“经济增长”向“公共治理”转型,基层事务的量与责同步扩张,带来纵向权力介入过密化的基层治理能力困境。与税费改革时期基层政权与社会的利益联结机制被瓦解所导致的“政权悬浮”不同,当下基层能力困境表现为过密化治理中基层政权自主统筹属地事务的治权出现流失的问题。基层治权的再造面临条块关系中的治权上浮、属地管理中的治权碎片化、政社关系中治权的新型悬浮化等结构性梗阻。数字治理平台通过技术规则替代科层规则和基于信息的裁量权威生产两个环节,有效修复了基层流失的治权,并呈现出条线压力平衡、属地权威再整合和社会资源汲取等三重机制。基层政权通过技术赋能对治理流程进行局部重构,绕过体制改革和机制创新的结构性难题,一定程度增强了基层治理的自主性。但随着基层治理问题愈加复杂化,实质性地再造基层治权还需要体制改革予以更深层次的呼应。

With the functional focus of the primary-level government is shifting from"economic growth"to"public governance",the quantity and responsibility of the public afairs are expanding simultaneously,which brings about the loss of governmental capacity under the involving of vertical power.Compared with the"regime suspension"caused by the collapse of the interest correlation between the primary-level regime and the society during the tax reform period,the current dilemma is manifested as the loss of the primary-level regime's authority.The analysis shows that the primary-level government is faced with structural obstacles such as tiao-kuai relationship,territorial management and government-community relationship.Based on a case study in Shanghai,this paper analyzes the process and mechanism of digital governance platform to restore the authority and rebuild the capacity of primay-level govenment.The research shows that the digital technology can effectively repair the loss of authority by replacing the bureaucratic rules with technical rules and produce information discretion.Technological restoration has three mechanisms,such as superior-level pressure balance,territorial authority reintegration and social resources absorption.Further discussion reveals that primary-level government can partially reconfigure the governmental process through technology.However,substantive reengineering of primary-level governance capacity requires deeper response of institutional reform.