驻村工作队在干什么?——基于中部山区X贫困县的田野调查

What Are the Village——Based Work Teams Doing?-Based on a Field Investigation of an Impoverished County in the Central Mountainous Region of China

为全面推进乡村振兴、巩固拓展脱贫攻坚成果,国家以派驻工作队的形式向农村提供干部资源支持,在农村基层社会治理中已形成常态化的驻村工作体制机制。调查发现,驻村工作队的工作内容纷繁复杂,具有面向科层行政体制系统和村庄社会治理的双重回应性特点,其工作大致可以总结为完成规定性工作任务、应对各类考核检查,以及回应村庄内部事务。客观而言,驻村工作队制度在基层实际运行过程中也产生了体制性形式主义、影响基层自组织治理秩序、国家公共性治理资源基层分配不公、基层驻村人员冗余、经济负担重等非预期后果。非预期后果产生的本质在于:在从精准扶贫向乡村振兴相衔接的政策转型背景下,基层依循从精准扶贫延续下来的驻村工作队治理贫困的传统制度路径以及考核治理思维惯性,其负外部效应导致了基层的不适应。该问题的解决需要从基层治理主体的本位立场出发,整体考虑基层对驻村工作队制度机制的实际承接能力,因地制宜、因时而变,不能“为了驻村而驻村”。

In order to comprehensively promote rural revitalization and consolidate and expand the achievements of poverty alleviation,the state provides cadre resources to the rural areas in the form of dispatching work teams that form a normalized working mechanism for grassroots social governance.This investigation finds that the work of the village work teams is complicated,with a dual responsiveness to the bureaucratic administrative system at all levels and to social governance in the village.The work mechanism can be roughly summarized as:completing the prescribed tasks,coping with the various assessments,and responding to the internal affairs of the village.Objectively,in the actual operational process,to a certain extent the mechanism creates multiple dilemmas at the grassroots levels,including formalism,disruption of governance order,an imbalance in the fair allocation of public governance resources,an overburdening of grassroots personnel,and increased pressures for funding of village operations.The essence of the dilemma is that against the background of the policy transition from targeted poverty alleviation to rural revitalization,the grassroots still follows a traditional path of poverty management and faces inertia in terms of assessing governance,leading to negative external effects and affecting the adaptability at the grassroots levels.It is necessary to consider the actual capacity of the system for the work teams from the perspective of the grassroots subjects,to adjust the measures to local conditions and allow them to change with the times,and not to settle in the villages merely for the sake of settling in the villages.