基层创新负担:现实形态、生成机理与治理路径

The Burden in Grassroots Innovation:Realistic Form,Generation Mechanism,and Governance Path

基层负担主要包括任务加码、监督规范和治理创新三种产生情境,其中治理创新可能通过流程化简为繁、职责化无为有和任务执行化夷为险三种路径增加基层负担。基层创新负担的生成源于基层治理评价的模糊性,创新成为评价基层治理工作的重要指标,由此形成了争先—强制、应激—配合、学习—合作、授权—松散四种纵向府际关系,不同府际关系中的创新负担形态和结构化程度存在差异。基层创新负担会增加基层治理的不确定性,表现为基层常规任务边缘化、权责失衡结构化、监督规范过密化和基层负担外部化。实现高效能的基层治理创新,一个可能路径在于建立目标均衡、内容适当、分工明确的集成创新体系。

The burden at the grassroots level mainly includes task encumbrance,supervision and regulation,and governance innovation.Among them,governance innovation may increase the burden at the grassroots level through turning simple processes into complexity,irresponsibility into responsibility,and the execution of tasks into risks.The grassroots burden caused by innovation stems from the ambiguity of grassroots governance evaluation,where innovation has become an important indicator for evaluating grassroots governance,resulting in four vertical intergovernmental relations:competition compulsion,stress cooperation,learning cooperation,and authorization looseness,in which the shape and degree of the grassroots burden caused by innovation are different.The grassroots burden caused by innovation could increase the uncertainty of grassroots governance,manifested as marginalization of routine tasks at the grassroots level,structural imbalance of power and responsibility,excessive supervision and standardization,and externalization of grassroots burdens.One possible path to achieving efficient innovation in grassroots governance is to establish an integrated innovation system with balanced goals,appropriate content,and clear division of tasks.