理解基层:治理属性与改革逻辑

Understanding Grassroots:Governance Attribute and Reform Logic

“基层”是一个在实践中制度化程度较低从而常处于变动不居状态的治理层级。它随着国家对社会的控制和渗透力量的变化而发生体制性变化,也常常在应对社会具体问题的过程中出现大量非制度化的探索和创新。它既呈现出变化性的特点,也内含稳定性的特征。看似矛盾的双重特性由其实践内涵及体制本身的治理属性所决定。“基层治理”指政府和社会共同参与的治理,既共同贯彻国家目标,落实国家的公共政策,也共同制定和维护社会规范,满足社会意愿,实现社会目标。它具有国家性、社会性和中间性等多重属性。国家性指它作为国家治理体系中的基础层级,自上而下地执行国家意志;社会性指国家意志的贯彻受到社会意愿的约束和社会内生规则的影响;中间性即基于服务国家目标和社会目标的需要,基层治理在二者的张力中寻求平衡和一致性。国家性、社会性和中间性为当下基层治理创新提供了认识依据,表现在三个方面:一是以党和政府服务体系纵向到底强化基层治理的国家性;二是以社会组织横向到边强化基层治理的社会性;三是以共建共治共享的机制构建解决基层治理的“中间难题”。

The Grassroots level is a governance level with a low degree of institutionalization in practice,so it is often in a changing state.With the change of the state’s control over society and infiltration power,it has undergone institutional changes,and a large number of non-institutional explorations and innovations often appear in the process of dealing with specific social problems.It not only presents the characteristics of variability,but also contains the characteristics of stability.The seemingly contradictory dual characteristics are determined by its governance attributes.It not only has the attribute of being the basic level of national governance,but also has the attribute of social self-governance,and also has the intermediate attribute of connecting the two.Nationalism,sociality and intermediateness determine its governance form in practice,and also provide a cognitive basis for the complicated grassroots governance innovation at present.