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嵌入式统合:新时代干部下乡优化乡村治理结构的实践逻辑

Embedded Integration:The Practical Logic of Optimizing Rural Governance Structure by Cadres Down to the Villages in New Era
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摘要 完善以驻村第一书记和工作队为代表的干部下乡制度,对于全面推进乡村振兴和实现农业农村现代化具有重要意义。本文以Z自治区观村为例,借助包含横纵嵌入情景、内外治理主体、正式与非正式制度的“情景-主体-制度”嵌入式统合分析框架,揭示了新时代干部下乡优化乡村治理结构的实践逻辑。研究发现:在干部下乡初期,下乡干部与乡村自治主体间的纵向合作治理失效和不同来源下乡干部间的横向协同治理失序共同导致了“双轨分离”困境。随后,下乡干部通过政治性嵌入、结构性嵌入、关系性嵌入和认知性嵌入四维“嵌入式统合”的制度调适,在注重纵向治理主体统合的同时更加强调横向治理主体统合,从而促进治理主体有序互动与治理资源有效配置,实现从“双轨分离”到“双轨耦合”的乡村治理结构优化。这一过程也蕴含着“政党培育社会”的价值指向,通过赋权增能培育一个代表公共价值的“中间群体”,在突破科层体制限制的同时更加强调政党力量的统合作用,以应对城乡中国转型时期乡村治理主体供给不足与组织衰败的困境,建立起国家与社会之间更强有力的连接,从而实现国家有效治理与乡村有序发展的双重目标。本文拓展了干部下乡制度研究的学理探索,进而为完善新时代干部下乡制度提供了政策启示。 Improving the effectiveness of the"Cadres Down to the Villages"system represented by the First Secretary and resident work teams,is crucial to promoting rural revitalization and enabling agricultural and rural modernization.Taking Guan Village in Z Autonomous Region as a case,this paper reveals the practice logic of optimizing the rural governance structure by Cadres Down to the Villages in New Era,based on the embedded Integrated theoretical framework of"Scenario-Subject-Institution"which includes horizontal and vertical embedded scenarios,internal and external action subjects,and formal and informal institutions.The results show that,at the early stage of Cadres Down to the Villages,the"Vertical Cooperation Governance Failure"between the cadres and rural autonomous subjects and the"Horizontal Cooperation Governance Disorder"between the cadres from different sources jointly led to the dilemma of"Dual-Track Separation".Subsequently,Cadres Down to the Villages dispatched to engage in a four-dimensional"embedded integration"of institutional adjustment encompassing political embedding,structural embedding,relational embedding,and cognitive em-bedding.This emphasizes not only vertical integration of governance subjects but also enhances horizontal integration,fostering orderly interaction among governance subjects and effective allocation of governance re-sources.Consequently,this facilitates the optimization of rural governance structures,shifting from a state of"dual-track separation"to"dual-track coupling".This process also embodies the value orientation of"cultivating society by political parties".It nurtures an empowered and capable"intermediary group"representing public values.Simultaneously breaking through the constraints of bureaucratic structures,it underscores the consolidating role of political party influence.This is to address the challenges of inadequate supply of rural governance subjects and organizational decline during the transformation period of urban and rural China.It fosters a stronger connection between the state and society,aiming at achieving the dual objectives of effective national governance and orderly rural development.This paper expands the theoretical exploration of the the"Cadres Down to the Villages"system,providing policy insights for improving this system in New Era.
作者 栗伊萱 杨晓婷 毛寿龙 Li Yixuan;Yang Xiaoting;Mao Shoulong(Department of National Governance,Party School of the Central Committee of C.P.C(National Academy of Governance),Beijing,100091,China;School of Economics,Beijing Technology and Business University,Beijing,100048,China;School of Public Administration and Policy,Renmin University of China,Beijing 100872,China)
出处 《公共管理学报》 CSSCI 北大核心 2024年第4期137-150,175,共15页 Journal of Public Management
基金 国家社会科学基金重点项目(20AZZ008)。
关键词 干部下乡 嵌入性理论 乡村治理结构 政党统合 双轨治理 Cadres Down to the Villages Embeddedness Rural Governance Structure Party Integrated Governance Two-Track Governance
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