摘要
作为体制与社会的结合点,乡镇基层政府面临着人事刚性约束与治理责任扩张的结构性压力。本文从组织的稳定性和适应性两个维度,探讨基层自主性扩张的两种基本形态:横向扩张依托于市场化用工,提升组织规模和分工水平,以稳定的组织结构应对治理压力;纵向扩张通过群众动员,建立派生型组织,借助其社会资源提升组织的社会适应性。在城乡不同治理情境下,资源禀赋、事务类型和治理目标差别影响着基层自主性的扩张路径:在经济资源充足、利益冲突型占主导,注重高速经济发展的城市地区基层,横向扩张有助于构建稳定的科层组织体系,以应对复杂的社会事务;在社会关系资源丰富、琐事纠纷普遍,以维持乡村社会秩序为目标的乡村地区基层,纵向扩张有助于提升组织适应性,强化政府的影响力。自主性横向、纵向扩张,实际上是基层政府因地制宜优化体制、创新机制的结果。基层自主性是治理有效的关键,应当适度保留基层政府灵活调整体制、机制的空间。
As the point of connection between the system and society,township grassroots governments face structural pressures from rigid personnel constraints and the expansion of governance responsibilities.This article analyzes the basic patterns in the expansion of grassroots autonomy in terms of organizational stability and adaptability:horizontal expansion relies on market-based employment to enhance the organizational scale and the division of labor so as to cope with the pressures of governance with a stable organizational structure;vertical expansion establishes derivative organizations through mass mobilization and enhances the social adaptability of the organizations with the help of their social resources.Under the differing governance situations in the urban and rural areas,the differences in resource endowments,types of affairs,and governance goals affect the path of expansion of grassroots autonomy:in urban areas where economic resources are abundant,conflicts of interest are dominant,and the focus is on high-speed economic development,horizontal expansion helps to shape stable sectional organizations to cope with the complex social affairs;in rural areas,where social relations are rich in resources,minor disputes are frequent,and the goal is to maintain order,vertical expansion helps to shape stable sectional organizations to deal with the complex social affairs.At the rural grassroots levels,vertical expansion helps to improve organizational adaptability and strengthen the influence of government.Horizontal and vertical expansions of autonomy are the outcome of grassroots governments optimizing their institutions and innovating their mechanisms according to local conditions.Because grassroots autonomy is the key to effective governance,grassroots governments should be allowed space to flexibly adjust their institutions and mechanisms.
作者
陈伟
CHEN Wei(Faculty of Social Sciences,Nanjing University)
出处
《公共管理评论》
CSSCI
2024年第4期72-85,共14页
China Public Administration Review
基金
江苏省研究生科研创新计划项目“中国基层政府编外用工的扩张及其解释”(项目批准号:KYCX21_0009)的资助。
关键词
基层自主性
组织的稳定性与适应性
基层治理情境
编外人员
grassroots autonomy
organizational size and organizational adaptability
grassroots governance
supernumerary employees
