政府事务的治理转化:重新理解乡镇政权

Governance Transformation of Government Affairs: A New Understanding of Township Power

乡镇政权的运行之所以呈现非标准化、非程式化的特征,与其工作性质有关,即乡镇必须将很大一部分自上而下的政府事务转化为需要农民具体同意的治理事务。治理转化的有效实现,要求乡镇干部队伍熟悉乡村社会,具备较强的综合能力、协调能力及自由裁量权。对这些能力的要求,与乡镇倾向于采取包村包片、混编混岗等非程式化的工作模式,进而在国家与农民之间进行需求的双向转化具有内在的匹配性。然而,政府监督机制和农民需求表达机制的不足,很容易导致乡镇在进行治理转化时出现偏差。以治理转化为基础来重新理解乡镇政权,可以为基层治理现代化提供一个新的分析框架。如果将基层治理现代化界定为国家与社会通过互动合作不断实现广大人民群众核心利益的过程,那么乡镇政权作为政府事务转化为治理事务的重要载体,在很大程度上就决定了广大人民群众的核心利益能否得到有效回应,进而决定了基层治理的现代化程度。

The reason why the operation of township power is irregular and non-stylized related to the nature of its work,that is,the township needs to transform a large part of the top-down government affairs into governance affairs which requiring a specific consent of farmers. The effective realization of governance transformation requires the cadres of town to be familiar with the rural society and have strong comprehensive ability,coordination ability and discretionary power. The demand for these capabilities makes the towns tend to adopt non-stylized working modes such as village grouping,mix of identity and post,so as to carry out two-way transformation of demands between the state and farmers.However,the deficiency of government supervision mechanism and farmers ' demand expression mechanism can easily lead to deviation in the governance transformation. Therefore,the modernization of grassroots governance should at least include three elements, namely, effective governance transformation capacity,regulatory system matching with the governance transformation capacity,and effective demand expression mechanism.