基层治理中的政策悬浮何以发生?——基于“指标干扰区”的组织学解释

Why Does Policy Suspension Occur in Primary-Level Governance?—An Organizational Explanation Based on“Indicator Interfering Zone”

在基层治理场景中,政策悬浮是一个屡被观察到的现象,但直面此议题的学术研究却付之阙如,政策悬浮何以发生仍是未解之谜。以M镇基层治理场景为观察对象的案例研究结果表明,“指标干扰区”是促发政策悬浮的结构化和稳态化机制。基层治理中的指标驱动不仅引发悬浮型政权“再生产”,也导致基层政府在政策在地化践行过程中产生行为偏差,由此形成的悬空式地方转译和脱嵌式政策执行破坏了双向有效性,催生“指标干扰区”,引致在驱使基层政府主动靠拢科层的同时,既难以将国家意志中的民生信号准确传导至乡村社会,也难以使政策在地化践行充分观照民众诉求,呈现出“文本为实、品质为虚”的悬浮形态。由于“指标干扰区”具有制度化、体系化和情境化等三重组织学特征,其在促发政策悬浮之外的连带效应同样不可忽视。就此而言,“指标干扰区”这一组织学解释不仅有助于洞悉中国情境下政策悬浮的发生机制,也为加强基层治理体系和治理能力现代化建设提供了新的学理参照。

In the context of primary-level governance,policy suspension is a frequently observed phenomenon,but academic research that directly faces this issue is lacking,and why policy suspension occurs remains an unsolved mystery.This empirical study based on primary-level governance scene in M town indicates that the“indicator interfering zone”is a structured and stable mechanism for promoting policy suspension.The indicator driven approach in primary-level governance not only triggers the“reproduction”of suspended political authority,but also leads to behavioral deviations in the implementation of policies by grassroots governments in the process of localization.The resulting suspended local translation and disembedded policy execution have disrupted two-way effectiveness,giving rise to“indicator interfering zone”.As a result,while driving grassroots governments to approach closer the bureaucracy,it is not only difficult to accurately transmitting the signals of people’s livelihood from the national will to the rural society,but also difficult to fully consider the demands of the people in the implementation of policies in a localized manner,presenting a suspended form of“text as reality and quality as virtuality”.Due to the triple organizational characteristics of institutionalization,systematization and contextualization of“indicator interfering zone”,its associated effects beyond promoting policy suspension cannot be ignored.In this regard,the academic construction of“indicator interfering zone”not only helps to understand the occurrence mechanism of policy suspension in the context of China thoroughly,but also provides new theoretical references for strengthening the modernization construction of the system and capacity for primary-level governance.