领导包联制:基层疑难事项的跨层级治理——概念缘起、实践类型及制度逻辑  

Leadership Connection System:The Cross-level Governance of Difficult Grassroots Issues:Concept Origin,Practice Type,and Institutional Logic

作　　者：王印红 郝本良 张一 Yinhong Wang;Benliang Hao;Yi Zhang

机构地区：[1]中国海洋大学国际事务与公共管理学院

出　　处：《公共行政评论》2024年第2期83-100,M0005,共19页Journal of Public Administration

摘　　要：领导包联制作为领导下沉参与基层治理的制度通道,在基层疑难、重点事项的治理中广泛应用,是具有本土特色的中国之治。论文溯及领导包联制的缘起,归纳了其当前典型实践样态,探讨了其何以推动基层疑难事项治理的制度逻辑。研究发现,第一,领导包联制是对党的领导干部“蹲点调研”工作方法的创新性传承,其由党的工作制度逐步发展为一项社会治理制度,在实践中取得了良好的治理成效。第二,领导包联制在实践中存在“中央领导联系点”“省级领导包县联市”和“市县领导包联事项”三种典型实践样态。第三,领导包联制通过对传统科层责任关系、组织关系、治理关系以及治理导向的重构,推动了基层疑难事项的跨层级治理。领导包联制是具有鲜明中国特色的上级领导参与基层微观事项治理的制度通道。上级领导介入基层治理工作在一定程度上减轻了基层在面对疑难治理事项时的压力,为观察和理解跨层级协作治理提供了新的视角。As an institutional channel for leaders to participate in grassroots governance,the leadership connection system has been widely used in the governance of difficult and important matters.This paper traces its origin,summarizes the types and characteristics of its current governance practices,and probes how the institutional logic of the leadership connection system promotes the governance of difficult matters at the grassroots level.The research findings are as follows:First,the leadership connection system is an innovative inheritance of a work method used by the Party's leading cadres called"stay at the research site."It was developed out of the Party's work system into a social governance system because it achieved good governance results.Second,there are three typical patterns in the practice of the leadership connection system:"central leadership contact point","provincial leaders package counties and cities",and"city and county leaders package matters."Third,the leadership connection system promotes the cross-level governance of difficult issues by reconstructing the traditional hierarchical responsibility relationship,the organizational relationship,the governance relationship,and the governance orientation.The leadership connection system is a system channel for superior leaders with distinctive Chinese characteristics to participate in the management of grassroots micro-matters.To a certain extent,the intervention of the superior leadership in the grass-roots governance work alleviates the pressure on the grassroots when facing a difficult governance issue.This study also provides new observations and understandings of China's cross-level,collaborative governance efforts.

关 键 词：领导包联制 党政体制 中国之治 制度逻辑 

分 类 号：D63[政治法律—政治学]