国家资源下乡与过程管理:乡村治理转型的内在逻辑及其效应

Countryside-targeted National Resources and Process Management:The Internal Logic of the Transformation of Rural Governance and its Effects

近年来,乡村治理被卷入系统性、结构性的形式主义困境当中,这与乡村治理转型有关。随着国家向农村投入大量财政资金推动乡村振兴战略实施,既有的结果管理方式难以适应农村基层管理的需要。地方政府遵循工具理性,采取以行政规则为基础、以合规化为目标和以痕迹管理为手段的过程管理方式,推动乡村治理规则从社会规则向行政规则转变。以行政规则为基础的乡村治理体系与非程式化、复杂化的乡村治理事务不适配,导致乡村治理形式化、繁琐化和形式主义内卷化困境。破解乡村治理形式主义顽疾要在资源下乡背景下实现基层管理与村民自治的均衡,构建复合规则为基础的乡村治理体系。

In recent years,the rural governance of China has been involved in the systemic and structural dilemmas of formalism,which is related to the transformation of rural governance.With the state investing quite a few financial resources into the countryside to promote the implementation of the rural revitalization strategy,it is difficult for the established result-based management approach to adapt to the needs of rural first-line management.Following instrumental rationality,the local governments have adopted a process management approach based on administrative rules,with compliance as the goal and trace management as the means to promote the transformation of rural governance from social rules to administrative rules.The rule-based rural administrative governance system is not compatible with the non-programmed and complex rural governance affairs,leading to the formalization and cumbersomeness of rural governance as well as the dilemma of formalistic involution.In order to solve the deep-rooted problem of formalism in rural governance,it is necessary to realize the balance between the first-line management and the villagers'self-governance in the context of countryside-targeted resources,and to build a composite rule-based rural governance system.