在管理与治理之间:资源约束条件下的基层治理创新

Management and governance:grassroots governance innovation under resource constraints

在中国“一核多元”的基层治理模式中,作为核心的党委,其领导多元主体的治理机制主要由两个方面构成,一是组织,二是协调。组织是指党委统筹和指挥各个主体完成各自的任务;协调是指党委对各个主体的统筹和指挥不是科层制下的纵向管理,而是致力于促成横向的协作。在“过紧日子”的资源约束环境下,基层政府财力趋紧,“人少事多”的问题更加突出,为达成治理目标,党委需要动员、统筹和指挥更多的治理资源和主体来完成治理任务,这使目前的基层治理创新具有强烈的管理意味。然而,由于被动员起来参与治理的主体不是科层体系内部的成员,而是社会主体与市场主体,因此党委还需要运用互惠与交换等方式进行协调,这使得基层的治理创新不止具有强烈的管理意味,还具有参与式治理的内涵,这正是中国基层之治的特色所在。

While grassroots governance in China emphasizes the interaction of multiple entities,there is a need for a leading entity to assume the role of a leader among the multiple entities.The grassroots party committee(government)inherently serves as the leading role in the“single core,multiple entities”grassroots governance model.In this model,the party committee primarily leads the governance by two main aspects:organization and coordination.Organization refers to the party committee’s overall coordination and command of each entity to accomplish their respective tasks,while coordination pertains to the party committee’s efforts to promote horizontal collaboration among entities,rather than a hierarchical vertical management.In a resource-constrained environment of“tightening belts”where grassroots government funds are limited and the issue of‘fewer people handling more tasks’becomes more prominent,the party committee needs to mobilize and coordinate more governance resources and entities to achieve governance goals.In this case,its innovation is more about exploring potential resources and enhancing management efficiency.However,as the participated entities are not members of the bureaucratic system but rather social and market-oriented entities,the party committee cannot use administrative management when coordinating and commanding them;it needs to employ approaches such as mutual benefit.This indicates that grassroots governance innovation embodies a new participatory governance,which is precisely the characteristic of grassroots governance in China.