条块整合:乡镇政府运作中的压力调适与治理韧性——基于湖北省F镇的案例分析

Kuai Integrating Tiao:Pressure Adjustment and Governance Resilience in the Operation of Township Governments——Based on the Case Study of Town F in Hubei Province

随着经济社会的快速发展,乡镇政府面临的治理事务日益增多,治理压力持续增大。在此背景下,乡镇政府通过将辖区站所有效纳入乡镇管理体制,实现从“条块分割”向“条块整合”的转换,以此调适和消解日益增加的治理压力。基于“动因—情境—策略”分析进路发现,纵向政府约束与横向社会问责的双重强化对乡镇政府积极履责的推动以及乡镇条块权责配置错位是驱动乡镇政府条块整合的主要动因。辖区站所对乡镇政府的高依赖性、乡镇政府的“扩权增人”需求构成条块整合的基本情境和条件。依托党建联合将站所纳入内部组织架构的隶属关系“结构化”、整合资源统一保障站所人员日常生活的生活保障“一体化”以及通过制造激励影响站所人员晋升发展的职业晋升“协同化”策略,共同促使乡镇政府将游离于乡镇政府之外的各类站所纳入乡镇管理体制。由此,乡镇政府的治理能力随之增强,基层治理压力显著下降。乡镇条块整合体现了我国多层级单一制国家结构在体制末端存在一定治理韧性,这一治理韧性能够在一定程度上纾解乡镇政府面临的治理压力。由于体制刚性约束与基层治理复杂现实的存在,乡镇条块整合蕴含的治理韧性相对于乡镇政府而言存在局限性,建立简约高效的基层管理体制还需从顶层设计入手,自上而下推动体制变革。

With the rapid development of economy and society,the township government is facing more and more governance affairs,and the pressure of governance continues to increase.In this context,the township government has realized the transformation from“segmentation”to“Kuai integrating Tiao”by effectively integrating the stations under its jurisdiction into the township management system,so as to adjust and dissipate the increasing governance pressure.Based on the“Driver-Situation-Strategy”analytical framework,it is found that the strengthening of vertical government control and horizontal social accountability squeezes the negative autonomy space of township governments and the misalignment of the allocation of rights and responsibilities of township governments are the main driving factors for Kuai integrating Tiao.The high dependence of the district station on the township government and the demand of the township government for“expanding power and increasing personnel”constitute the basic situation and conditions for the integration of the districts.Relying on the“structuring”of the subordinate relationship of the station into the internal organizational structure of the party building alliance,the“integration”of the daily life guarantee of the station personnel by integrating resources,and the“synergy”of career promotion through the creation of incentives for the promotion and development of the station personnel,the township government finally realized the strategic process of incorporating all kinds of stations that are free from the township government into the township management system.As a result,the governance capacity of township governments has been enhanced,and the pressure on grassroots governance has decreased significantly.The spontaneous integration of Kuai integrating Tiao in townships reflects the resilience of China’s multi-level unitary state structure at the end of the system,which can alleviate the governance pressure faced by the township government to a certain extent.Due to the rigid constraints of the system and the complex reality of grassroots governance,there is a limit to the institutional resilience highlighted by the spontaneous integration of Kuai integrating Tiao in townships to the adjustment of governance pressure on township governments,and the establishment of a simple and efficient grassroots management system also needs to start from the top-level design and promote the system reform from top to bottom.