返场、控制与捆绑:乡镇干部的压力源及其解释

乡镇干部在基层治理中的角色经历了从边缘到中心的转换,却未能改变被上下挤压的弱势地位,这源于治理结构和过程中隐匿的制度逻辑:一方面,国家返场需要乡镇干部代理更多乡村公共事务,科层体系等级化运转的体制性压力都传导到乡镇,乡镇干部面临着自上而下的精密化技术控制;另一方面,悬浮化的乡镇政权依靠干部下乡、包村、入户等形式再次下沉,乡镇干部既要硬性地完成科层组织上端各部门转移下来的中心工作,又要软性地在治理实践中协调利益关系和服务村民,面临着组织动员难、政策攀比、农民反制等自下而上的捆绑。乡镇干部被上下挤压是体制性压力转移、技术控制和乡村事务捆绑相互作用的结果,折射出国家返场后乡镇政权运作负担过重和乡村自主治理能力弱化的困境。应重构基层治理结构和技术治理体系,为乡镇干部从结构层面释放压力和技术层面减负,从体制性压力、技术控制和繁杂的形式主义中解脱出来,激发乡村社会内生的治理能力。

Return,Control and Binding: Pressure Source and Logic of Township Cadres

The role of township and village cadres at the grassroots governance has experienced the transformation from edge to center, failed to change the weak position in which squeezed by superior and subordinate. It is the result of the hidden logic in the process of governance structure and system: on the one hand, countries going back to village and township need cadres to handle more village public affairs, hierarchical system of grading operation of systemic pressure conduction to the villages and towns, township and village cadres facing a top-down control motors technology;Suspension of the villages and towns regime, on the other hand, rely on the rural cadres contracting village, entering household and other forms to sink again. Township and village cadres are hard to finish the bureaucratic organization move down the center of the top departments work, and to coordinate the interest relationship in the governance practice soft and services of the villagers, facing the organisation, such as policy, farmers counter comparison from the bottom up. The squeezing of township cadres is the result of the interaction of institutional pressure transfer, technical control and rural affairs binding, which reflects the dilemma of the overburden of township government operation and the weakening of rural autonomous governance capacity after the return of the state. It is necessary to reconstruct the basic-level governance structure and technical governance system, release the pressure from the structure level and reduce the burden from the technical level for the township cadres, release the institutional pressure, technical control and complicated formalism, and stimulate the endogenous governance capacity of rural society.