行政引领型的社群治理:乡镇护林防火体系的制度与组织建设

Forestry Fire Prevention System Building in Township:Perspective from Administratively Led Community Governance

森林火灾具有突生性、危害性和难处置的特征。既有基层林火治理依赖于以命令与控制为特征的行政机制。乡镇政府以及相应的治理人员负担沉重,体现在林火散发防不胜防、散火扑灭疲于奔命。基于社会治理的治国理念并借鉴国际公共治理变革前沿理论,本文构建了行政引领型社群治理的分析框架,探索更具敏捷、适应和韧性特征的基层护林防火治理之道。以S省省级护林防火示范乡镇青林镇为案例,本研究发现,乡镇政府通过行政介入、行政赋权、行政监督的方式,在原本社群机制近乎完全失灵的社区创设社群公共议题,培育社群社会资本,整合社群规范制度,激励社群公共参与,实现了行政机制与社群机制的互补嵌合,达成了护林防火的社群善治。本文展示了行政引领型社群治理的理论逻辑及其在中国乡村基层护林防火体系建设的实践经验,借此超越奥斯特罗姆多中心治理理论并践行社会治理理念,探索行政力量是否有可能在社群治理难以自发演进形成的境况下授权赋能社区,激活社群机制。

Forest fire is characterized by unexpectedness,severe damage and tough management.The existing forest fire grassroots governance highly relies on the functioning of administrative governance characteristic of command-and-control.Township governments as well as those who is in charge of governing the issue bear so heavy administrative burdens that sporadic forest fires are hardly to be prevented and wearily to be put out.Based on the governmental idea of social governance as well as making reference to the theoretical advances on the frontline of international public governance change,this paper build up an analytical framework of administratively led community governance,so as to explore the way of more nimble,adaptive and resilient governing forest fires at the grassroots.Conducting a case study of Qinglin Township,a model township of forest fire prevention in S province,this paper finds that through engagement,delegation and supervision the township government creates community public issues,forest community-based social capital,integrating community norms and institutions,and stimulating public participation among community members,so that administrative and community mechanisms are complementarily embedded,and the good community governance of forest fire prevention is achieved.This paper displays the theoretical logic and practical experience administratively led community governance,so as to go beyond Elinor Ostrom's theory of polycentric governance,practice the idea of social governance,and explore the possibilities of administrative forces empowering the communities and activating community mechanism in the circumstance that community governance is hardly shaped through spontaneous evolution.