多中心工作与过程管理:县域治理结构变革的内在逻辑  

Multicentric Work and Process Management:Inner Logic of Country Area's Governance Structure Reform

作　　者：杨华[1] Yang Hua

机构地区：[1]武汉大学社会学院,湖北省武汉市430072

出　　处：《政治学研究》2022年第6期111-122,M0006,M0007,共14页CASS Journal of Political Science

基　　金：教育部人文社会科学研究青年基金项目“全面从严治党视域下基层‘小官贪腐’治理机制研究”(18YJC710086)的研究成果。

摘　　要：调研发现,近年形式主义在基层的爆发与县域治理结构变化有关。在组织结构、权力结构等要素未发生变化的情况下,县域治理结构因为治理事务由单中心工作向多中心工作的转变、治理方式从结果管理向过程管理的转变,而发生了从分散治理结构向集中治理结构的深刻变革。在分散治理结构下,县级党委政府布置的中心工作少,对中心工作实行结果管理,从而给予了乡镇较大自主空间和自主权,乡镇在工作上有轻重缓急之分,能充分发挥积极性、主动性和创造性,因而较少产生形式主义。伴随着资源下乡、监督下乡和强调工作落实,县级部门业务越来越多地转化为县级党委政府的中心工作,并且县级部门也加强了对工作落实的过程管理,乡镇需要“对标对表”顶格完成上级的工作任务,这使得乡镇自主权弱化、主体性缺失,乡镇缺乏政策创新、机制创新的空间和动力。分散治理结构与乡镇一线治理情境相匹配,而集中治理结构容易滋生形式主义。According to the research,it’s found that the formism’s outbreak in grassroots in recent years is concerned with the changes of county area’s governance structure. Under no changes of organizational structure and authority structure,the county area’s governance structure has a profound reform from authority decentralization to authority centralization,since governance affairs change from monocentric to multicentric work,the way of governance changes from results management to process management. Under the decentralized governance structure,county-level party committee government assigns little central work,implements results management towards the completion of central work with less supervision on implementation process,giving big autonomic space and residual claims to villages and towns that can prioritize all the work,give full play to initiative,proactivity,creativity,with less formism. With resources and supervision implemented in countryside as well as emphasis on work implementation,county-level departments’ business has converted into central work assigned by county-level party committee government,reinforced the process management on work implementation. The villages and towns need to fully complete higher tasks “according to standards and list”,which results in weakened autonomy of villages and towns,lack of subjectivity,deficiency of space and energy of policy,scheme innovation. Decentralized governance structure matches with villages and towns’ frontline governance situations,on the contrary,the centralized governance structure is prone to breed grassroots’ formism.

关 键 词：形式主义 央地关系 县乡关系 发包制 目标管理 治理现代化 

分 类 号：D630[政治法律—政治学]