乡镇治理结构的双重调适及其实践逻辑——基于管区制度的案例研究

Dual Adaptation of Township Governance Structure and Its Practical Logic:A Case Study of the Administrative District System

通过乡镇治理结构调适提高基层政府的适应能力,已经成为基层治理现代化的重要内容。以山东省菏泽市成武县W镇的管区制度为例,探讨乡镇政府治理结构调适的实践过程与内在逻辑。研究发现,乡镇政府通过管区制度再造科层组织结构,实现了基层治理资源的合理配置与有效统合。在此基础上,乡镇政府借助管区制度推动任务执行,形成统筹包干制的治理策略,充分调动了乡镇干部的治理积极性。治理结构的双重调适体现了乡镇政府的多重实践逻辑,即党政体制对组织结构的调适、基层治理对一线治理的适应以及治理成本与有效治理的平衡。治理结构调适说明乡镇具有一定的自主性,这种自主性源于基层党政体制的弹性与制度空间。

Improving the adaptability of primary-level governments through the adaptation of township governance structure has become an important element in the modernization of primary-level governance.Taking Town W of Chengwu County in Shandong Province as an example,the study explores the practical process and internal logic of the adaptation of the governance structure at the township level.It is found that the township government has realized the rational allocation and effective integration of primary-level governance resources with the organizational restructuring through the administrative district system.On this basis,the township government promotes the implementation of tasks by means of the administrative district system,and forms the governance strategy of the integrated lump-sum system,which fully mobilizes the enthusiasm of the township officials in governance.The dual adaptation of the governance structure reflects the multiple practical logic of the township government,i.e.,the adaptation of the Party-government system to the organizational structure,the adaptation of the primary-level governance to the front-line governance,and the balance between governance cost and effective governance.The adaptation of the governance structure indicates that the townships have a certain degree of autonomy,which stems from the flexibility and institutional space of the Party-government system at the primary level.