重构双轨:我国乡村治理中单向治理的生成逻辑与困境破解  

Reconstructing Dual Track: the Generative Logic and Dilemma Solving of One-way Governance in Rural Governance in China

作　　者：任中平[1] REN Zhong-Ping

机构地区：[1]西华师范大学政治学研究所,四川南充637002

出　　处：《党政研究》2023年第2期17-28,123,共13页Studies on Party and Government

基　　金：国家社科基金重大委托项目“全过程民主与基层社会治理研究”(21@ZH032)。

摘　　要：进入新世纪以来,国家在推动新农村建设和城乡一体化进程,随后启动乡村振兴战略的背景下,在对农村社会空前加大资源投入和政策优惠的同时,运用行政力量加强对乡村社会的直接治理,一些地方的乡村治理逐渐出现了新的景象:行政吸纳自治,管理替代治理,或者说基层治理中基层民主弱化和不足。从制度视角进行分析,基层单向治理是压力型体制直接下沉到基层社会的必然产物。一方面,国家权力下沉村庄,基层政治生态发生变化,造成了单向治理生存的外部环境。另一方面,村庄精英“缺席”村治,村委会变为“村政府”,成为单向治理形成的主要内因。正是在这样的场域之中,原有的国家和社会之间的分层治理体系发生很大改变,随着国家行政力量的强势推进,打通了乡镇科层化和村治行政化这两个关节点,自上而下的行政力量便可以一杆子插到底,基层单向治理的难题便由此形成。这种基层单向治理的状况已成为目前一些地方推进乡村振兴、实现有效治理的瓶颈制约。基层单向治理的长期运行必然造成乡村治理的僵化,不仅影响到乡村振兴进程和基层有效治理,而且会导致基层治理功能弱化,潜藏着引发基层社会的不稳定风险。今天要推进和落实全过程人民民主,务必下大力气破解乡村治理中的单向治理困境,重构基层治理中的双向轨道,实现行政与自治之间的良性互动,为基层民主与基层治理留下更多自主活动空间,从而为实现乡村振兴战略和基层有效治理创造有利条件。Since the beginning of the new century,under the background of promoting the construction of new countryside and the process of urban-rural integration,followed by the launch of the rural revitalization strategy,the state has not only increased unprecedented resource input and policy preference to rural society,but also used administrative power to strengthen the direct governance of rural society.In some places,a new phenomenon has gradually appeared in rural governance:administration absorbs autonomy,management replaces governance,or the weakening and deficiency of primary-level democracy in primary-level governance.From the institutional perspective,the one-way governance of the grassroots is the inevitable result of the pressure system sinking directly to the grass-roots society.On the one hand,as the state power sinks in villages,the political ecology at the grass-roots level has changed,resulting in an external environment for one-way governance.On the other hand,the absence of village elites and the transformation of village committee into village government have become the main internal reason for the formation of one-way governance.In such a field,the original hierarchical governance system between the state and society has undergone great changes.With the strong promotion of the national administrative force,the two key points of township stratification and village governance administration have been broken through,and the top-down administrative force can be inserted to the end,thus forming the problem of one-way governance at the grass-roots level.Such one-way governance at the grassroots level has become a bottleneck for some localities to promote rural revitalization and achieve effective governance.The long-term operation of one-way governance at the grass-roots level will inevitably lead to the rigidity of rural governance,which will not only affect the process of rural revitalization and effective governance at the grass-roots level,but also lead to the weakening of the function of primary-level

关 键 词：乡村治理 单向治理 双轨政治 基层民主 

分 类 号：D638[政治法律—政治学]