基层治理法治化:制度内涵与实践经验

Legalization of grassroots governance:institutional connotation and practical experience

基层治理法治化是实现治理体系和治理能力现代化的重要目标和内容,推进基层治理法治化需要处理好法治与效能的关系,基于文献梳理和上海的基层治理实践,对基层治理法治化的内涵与困境进行研究。研究发现,基层治理法治化应当包含权力的规范运行及其与权利的有效互动两个要义,通过统合正式与非正式制度推动治理合法性与有效性的统一;基层治理法治化可以通过健全基层法治体系推动治理权力规范化运行,发挥党建统合优势,深化大联动机制整合正式与非正式治理资源,同时规范智能治理运作体系,提升治理有效性;治理模糊性与法治严谨性的内在张力在一定程度上仍然存在,主要表现为制度匹配错位、部门协同难题与绩效考核困境等;新制度主义理论有助于理解中国基层治理法治化的实践逻辑,法治化、制度化能够降低治理成本,基层治理的资源约束使治理行动存在策略性执行空间,可能会加剧基层治理法治化困境。研究表明,要继续推进基层简约高效治理体制的构建,充分发挥基层党组织的协同整合作用,优化基层考核激励机制,推动基层治理秩序与活力的平衡。

The legalization of grassroots governance stands as a pivotal objective and component in achieving modernized governance systems and capabilities.To advance this,striking a balance between the rule of law and efficiency is crucial.Drawing insights from literature and grounded in the Shanghai-based practice of grassroots governance,this paper aims to dissect its connotations and challenges.Our study discerns two core aspects crucial to the legalization of grassroots governance:the structured exercise of power alongside its harmonious interaction with rights,and the fusion of formal and informal systems to fortify governance s legitimacy and effectiveness.Elevating the rule of law at the grassroots level is instrumental in achieving this.It involves standardizing governance operations,leveraging the synergies of party building,deepening interconnected mechanisms to merge formal and informal governance resources,and instituting intelligent operational systems for enhanced effectiveness.However,tensions persist between governance ambiguity and the rigidity of legal frameworks.This tension is evident in systemic disparities,inter-departmental coordination hurdles,and challenges in performance evaluation.The theoretical framework of neo-institutionalism aids in comprehending the pragmatic rationale behind China s legalization of grassroots governance.While legalization and institutionalization can streamline governance costs and bolster grassroots resources,limitations also carve out space for strategic governance execution,potentially exacerbating dilemmas.Our research underscores the imperative of furthering the development of a straightforward and efficient grassroots governance structure.It stresses maximizing the collaborative role of grassroots party units,refining assessment and incentive mechanisms,and fostering equilibrium between order and dynamism within grassroots governance.