属地管理与基层自主性——乡镇政府如何应对有责无权的治理困境

属地管理作为一种行政管理体制,强调以地域来划分政府间责任,并赋予属地政府以一定的自主空间,以期实现守土有责的制度目标。对粤东Z镇的调查显示:基层治理中的属地管理更多地是一种责任落实与追究机制,并逐渐演变为上级职能部门甩锅推责的工具,乡镇政府由此陷入一种有责无权的治理困境。但属地高压下的乡镇政府能够充分发挥能动者的作用,发展出一套基于基层自主性的应对之策,其自主性主要体现在乡镇能够依据属地管理任务的事件属性来自主选择应对策略。基层自主性既是一种现实图景,也构成一种审视基层政府角色的分析视角,从而有助于理解权威体制与有效治理之间的张力,也有助于拓展“压力型体制”和“行政发包制”的理论解释力。

Jurisdictional Management and Primary-level Autonomy:How to Deal with the Governance Dilemma of Responsibility Without Authority in Township Government

As a kind of administrative system,jurisdictional management emphasizes the division of inter-governmental responsibility by region,and endow the jurisdictional government with certain autonomy in order to realize system target of being responsible for defending the territory.The investigation of Z town in eastern Guangdong shows that jurisdictional government has gradually evolved into a tool for the superior functional departments to shirk responsibility,and thus,the township government has fallen into a governance dilemma of taking responsibility but without authority.However,under jurisdictional high pressure,the township government can play a dynamic role in developing a set of response strategies based on primary-level autonomy,which is mainly reflected in the fact that the township government can choose coping strategies according to the event attributes of territorial management tasks.Primary-level autonomy is not only an realistic picture,but also an explanatory framework to examine the role of the primary-level government.It helps us better understand the tension between the authoritative system and effective governance,and also helps to expand the theoretical explanatory power of“pressurized system”and“administrative subcontract”.