基层治理体系中“中心工作”的产生、泛化及应对策略

The Emergence,Generalization and Counter Strategies of'Central Work'in the Primary-Level Governance System

中心工作是党委贯彻领导意志、推动行政体系完成重要治理事务的制度化方式,是“党的领导”治理体制的具体化,属于具有中国特色的社会主义治理传统的重要构成。当前,中心工作在基层治理体系中产生了较强的泛化效应。在乡镇治理中,“编岗混同”逐渐常态化,治理规范化意义上的“定岗定编定责”越发难以形成。在村级治理中,乡镇政府对村“两委”成员实行“类编制化”管理,村级组织行政化程度不断加剧。中心工作的泛化效应,源于重要工作和常规工作之间缺乏有效的区分,而基层复杂的条块关系对此亦有所加重。中心工作泛化之后,一线行政空转加剧,治理形式主义泛滥,基层治理陷入新的“悬浮”困境。为缓解中心工作的泛化效应,应加强县乡村纵向治理体系的层级统筹,增强基层治理的社会回应性。

The central work is an institutionalized way for the party committee to implement the leadership will and promote the administrative system to complete important governance affairs.It is the concretization of the"party's leadership"governance system and an important component of the socialist governance tradition with Chinese characteristics.At present,the central work has a strong generalization effect in the grassroots governance system.In the governance of villages and towns,'Post mixed'are gradually normalized,and it is more and more difficult to form'fixed posts and fixed responsibilities'in the sense of governance standardization.In the villagelevel governance,the township government implements the"class establishment"management of the members of the"two committees"of the village,and the degree of administration of the village-level organization is increasing.The generalization effect of central work stems from the lack of effective distinction between important work and routine work,which is exacerbated by complex relationships at the grass-roots level.After the generalization of the central work,the first-line administrative vacancy has intensified,governance formalism has spread,and grassroots governance has fallen into a new'suspension'dilemma.In order to alleviate the generalization effect of the central work,it is necessary to strengthen the hierarchical coordination of the countyrural vertical governance system and enhance the social responsiveness of grassroots governance.