党建统合治理:村级组织负责人“一肩挑”的机理、挑战与应对——基于陕西省的多案例比较研究

Party Building Integrating Governance:The Mechanism,Challenges and Responses to the"One-Shoulder Pole"of Village Heads--Based on Comparative Case Studies in Shaanxi Province

村级组织负责人“一肩挑”是党中央明确倡导,作为加强党建引领、推进基层治理现代化的重要政策举措,并在政治势能的高位推动下迅即全面推行。文章尝试提出“党建统合治理”作为解释性框架来探究“一肩挑”的实现机理,提出“一肩挑”本质是国家逻辑与乡村逻辑的政治性联结,是国家权力对于乡村社会的“复归”。其以权力重构为杠杆、以职位合并为媒介,撬动了基层治理的权力结构、政策执行、激励机制和信息传递等诸多领域。通过对多类型村社的实地调研发现,“一肩挑”在实践中存在村级组织负责人的选举“挤出”和监管“虚置”风险,并在镇街嵌入和村社自主性、村级组织负责人注意力竞争和角色转换中存在现实挑战,亟须从完善村级组织负责人选拔程序、形成多元立体监督机制、优化村级干部培养机制和激发村民自主参与意识等方面加以应对。

The"one-shoulder pole"of village heads is explicitly advocated by the Party Central Committee as an important policy initiative to strengthen the leadership of Party building and to promote the modernization of primary-level governance,and is quickly and comprehensively implemented under the impetus of high political potential.This paper tries to put forward"party building integrating governance"as an explanatory framework to explore the realization mechanism of the"one-shoulder pole",and argues that the essence of the"one-shoulder pole"is the political connection between the state logic and the rural logic,and the"return"of state power to the rural society.With position combination as the media,the reconstruction of powers has leveraged the power structure,policy implementation,incentive mechanism and information transmission.Through field research on many types of villages and communities,it is found that the"one-shoulder pole"in practice involves the risks of"crowding out"the election of village heads and"fictionalizing"supervision.There are also challenges in terms of township embeddedness and village autonomy,competition for the attention and role change of village heads,which need to be addressed urgently through improving the selection process for village heads,forming an all-round supervision mechanism,optimizing the training mechanism for village heads,and stimulating the awareness of villagers to participate autonomously.