乡村基层治理的假想科层关系及其法治悖论——基于“草根—科层”框架的质性研究

The Hypothetical Bureaucratic Relationship of Rural Grassroots Governance and Its Paradox of Rule of Law:Qualitative Study Based on the“Grassroots-Hierarchical”Framework

村治与乡政之间的关系是基层治理及其法治化过程中的一个重要命题。通过建构“草根—科层”二元框架发现,村民委员会的科层性只可能在拟制的意义上成立,因为它本质上是由村民委员会主导者的身份转换诉求、政治权力欲望与乡镇政府的情感控制策略共同促成的假想科层关系。借助新制度主义的“组织场域”理论解读,村民委员会主导者试图在乡村基层治理的“组织场域”中,诉诸三重秩序资源的再生产,而将假想科层关系制度化。但由于“村治”与“乡政”的分离格局具有难以突破的规范和价值理由,这种努力往往难以实现。化解这种假想科层关系是基层治理法治化的题中之义,但受其“后坐力”影响,法治化的相关制度安排会导致村治与乡政展开资源拉锯战,村治与乡政的关系状态会随之走入另一种格局。但就像将“假想”制度化的期待无法实现一样,这一法治悖论也无法成为扭转基层法治化进程的阻碍事由。

The relationship between village governance and township governance is an important proposition in the process of grassroots governance and its legalization.By constructing the“grassroots-bureaucratic”binary framework,it is not difficult to find that township governments and villagers’committees are both grassroots governance organizations with duality.However,the bureaucracy of the villagers’committee can only be established in the sense of fiction,because it originates from a kind of psychological tacit understanding in rural grassroots governance.In essence,it is an“imaginary”bureaucratic relationship jointly promoted by the identity transformation appeal of the leader of the villagers’committee,the desire for political power and the emotional control strategy of the township government.Under the“organizational field”theory of new institutionalism,the leaders of villagers’committees try to resort to the reproduction of triple order resources in the“organizational field”of rural grassroots governance,namely,the pursuit of identity order in cultural-cognitive elements,the pursuit of profit-sharing order in regulatory elements and the pursuit of party and government order(power order)in normative elements,and institutionalize the“hypothetical”bureaucratic relationship.Due to the separation pattern of“village governance”and“township administration”with norms and value reasons that are difficult to break through,this kind of effort can only be in vain.