数字治理促进乡村治理效能提升:关键挑战、逻辑框架和政策优化

Rural Governance Effectiveness Driven by Digital Governance:Challenges,Theoretical Framework,and Policy Optimization

以数字治理驱动乡村治理提质增效是促进数字乡村高质量发展、加快乡村全面振兴的内在要求。随着国家持续完善政策支持体系、社会资本加速布局、数据要素市场加快发育、数字基础设施和主体素质不断改善,乡村数字治理提质增效迎来重要机遇。虽然我国乡村数字治理在大数据平台应用、用户端APP推广与农民数字参与、“数字化+网格化”治理融合、数字化积分制治理等方面取得明显进展,但仍面临数字技术供需不匹配,数字技术、组织与制度的融合度不高,多元主体共建共治合力尚未形成,线上线下治理协同性不足,数字城乡融合发展水平低,数字治理与数字经济的协调性不强,数据要素治理机制不完善等关键挑战。以国家治理效能的一般分析范式为参照,本文提出数字治理“理念—结构—方式—结果—机制”的效能解析框架,界定乡村高效能数字治理集中体现为数字治理理念的人本取向、结构的多元主体协同、方式的科学精准、效果的多维性与可持续、机制的系统完善,并依据新公共治理理论阐释乡村数字治理效能形成的制度、政策、技术和主体作用逻辑。为着力提升乡村数字治理效能,本文提出坚持系统思维、辩证思维和创新思维,着重处理好数字技术供给与需求、工具理性与制度理性、精英引领带动与大众充分参与、线上治理与线下治理、数字乡村治理与智慧城市治理、数字治理与数字经济、数字治理与数据治理之间的关系。

Improving the quality and efficiency of rural governance using digital technologies is increasingly becoming one of the urgent requirements for high-quality construction of digital villages and rural revitalization.Along with the improved policy support from the governments,increased investment from social capital,the accelerated development of data factor market,and the continuous improvement of digital infrastructure and subject quality,rural digital governance faces opportunities to improve its quality and efficiency.While significant progress has been made in rural digital governance in terms of big data platform application,user-side APP promotion and farmers'engagement,the integration of digital and grid governance,and score-based governance,there are still many challenges,such as the mismatch between supply and demand of digital technology,low level of integration among digital technology,organization and system,lack of synergy between multiple entities as well as between online and offline governance,low level of urban-rural integration in digital governance,poor coordination between digital governance and digital economy,and imperfect governance of data factors.Referring to the analytical paradigm of national level governance effectiveness,this paper points out that the effective digital governance is embodied in the humanistic orientation in terms of the concepts,the coordination of multiple subjects in aspects of structure,the scientific and accurate ways,the multi-dimensional and sustainable effectiveness,and the systematic and perfect mechanisms of the digital governance.This paper also explains the logics for the formation of rural digital governance efficiency from the perspectives of system,policy,technology,and entity based on the theory of new public governance.This paper concludes with the following policy suggestions to improve the effectiveness of rural digital governance,such as systematic,dialectical and innovative thoughts should be encouraged,and more emphasis should be placed on the relationships between supply and demand of digital technologies,instrumental rationality and institutional rationality,elite leadership and participation of the public,online and offline governance,digital rural governance and smart township governance,digital governance and digital economy,as well as digital governance and data governance.