监督下乡、分责秩序与乡村关系重构

Supervision to the Countryside,Order of Division of Responsibilities and Reconstruction of Rural Relations

在国家治理现代化转型背景下,监督下乡不断重塑基层治理的实践样态。伴随监督体系的层级扩大,监督的泛化、精细化以及问责强化,基于考核、督查与问责三位一体的监督机制高度强化,导致乡镇治理陷入“责能失衡”困境。为此,乡镇依托“分责”机制,也即通过党政统合的总体责任配置、行政包干的横向责任压实以及监督下沉的纵向责任下移,展开对此困境的应对实践治理。乡镇的分责实践塑造了以“分责秩序”为核心的乡村治理秩序,“分责秩序”的生成本质上是乡镇在监督问责的压力型体制下积极避责的结果。在此分责秩序下乡村组成紧密的“责任共同体”,其区别于分利秩序所塑造的乡村利益共同体,成为新型乡村关系形态。乡村责任共同体相对有效地应对高压问责的多中心工作,但也造成了乡镇体制过热与村级组织行政化等意外后果。

In the context of the modernization and transformation of national governance,supervision going to the countryside constantly reshapes the practice of grassroots governance.Along with the level expansion of the supervision system,the generalization and refinement of supervision,and the strengthening of accountability,the supervision mechanism based on the trinity of assessment,supervision and accountability has been highly strengthened,resulting in township governance falling into the dilemma of“responsibility-energy imbalance”.To this end,townships rely on the“separation of responsibilities”mechanism,that is,through the overall responsibility allocation of party-government integration,the consolidation of horizontal responsibilities through administrative responsibility,and the downward movement of vertical responsibilities through supervision,to carry out responsive governance to this dilemma.The practice of division of responsibilities in townships has shaped the rural governance order with the“order of division of responsibilities”as the core.Under this division of responsibility order,villages form a close“community of responsibility”,which is different from the community of rural interests shaped by the order of distribution of profits,and becomes a new form of rural relations.The village responsibility community is relatively effective in coping with the high-pressure accountability multi-center work,but it has also caused unintended consequences such as the overheating of the township system and the administrativeization of village-level organizations.