摘要
厘清乡镇条块关系的结构形态与演变机制对于完善基层治理体系具有十分重要的意义.本文基于协同治理理论,通过对鄂西太平溪镇乡镇条块关系的变迁历程进行考察和分析发现,进入21世纪以后,中国乡镇条块关系经历了一个从分离到统合的演变过程.21世纪初期,受乡镇机构改革影响,乡镇政府与辖区内条线站所之间的行政隶属关系被取消,二者之间的关系从紧密走向分离.党的十八大以来,随着中央加强对乡村基层各方面工作的推进力度,乡村治理工作逐步深化,工作强度和难度同步提高.为了应对这一变化,乡镇政府和辖区内条线站所在治理实践中自发结成合作关系,形成协同治理结构.相较于条线站所为乡镇政府提供的人力、技术和管理权限支持,乡镇政府为条线站所提供的经济和组织支持更加无法替代,这使乡镇政府得以在协同过程中占据主导地位.由此,乡镇政府能够有效整合辖区内条线站所,从而形成"统合型"乡镇条块关系."统合型"乡镇条块关系能够有效提升乡镇政府的履职能力,但也导致其治理行为出现一定的失控风险.
Abstract
Clarifying the structural forms and evolutionary mechanisms of township vertical-horizontal relationships is of great importance for improving the grassroots governance system.Based on the theory of collaborative governance,this study investigates the transformation of vertical-horizontal relationships in Taipingxi Township,western Hubei Province.It reveals that since the 21st century,China's township vertical-horizontal relationships have undergone an evolutionary process from separation to integration.In the early 21st century,in order to alleviate farmers'burdens and standardize the governance practices of township governments,the state vigorously promoted the reform of township institutions.Affected by the reform,the administrative subordination between township governments and line stations within the jurisdiction was dissolved,leading to a shift form close ties to separation.Since the 18th National Congress of the Communist Party of China,the state has increased the efforts to promote various aspects of rural grassroots governance.The work of rural governance in China has shifted from the"center-oriented work model"focusing on maintaining social stability and ensuring food security to the"multi-centered work model"that balances ecological environmental protection,economic development,cultural construction,public services,and resource conservation.Against this backdrop,the complexity and intensity of township governance work have increased significantly.In response to these changes,township governments and line stations within the jurisdiction spontaneously formed cooperative relationships in governance practice,creating a collaborative governance structure.Within this structure,line stations mainly provide human resources,technical expertise,and administrative authority to township governments,while township governments primarily offer economic and organizational support to line stations.During the operation of the collaborative governance structure,compared to the human,technical,and administrative authority support provided by line stations to township governments,the economic and organizational support provided by township governments to line stations is more rigid and irreplaceable.This allows township governments to firmly maintain a dominant position in the collaborative process,enabling them to effectively integrate line stations within the jurisdiction and establish an"integrated"township vertical-horizontal relationships.Such integration helps resolve issues such as the incomplete organizational structure and lack of management authority of township governments,thereby effectively enhancing the governance capacity of township governments.However,this relationship model may also weaken the constraining ability of higher-level governments over township governments,potentially leading to unchecked administrative behaviors.
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