贫困治理失灵:问题缘起、发生逻辑与策略选择
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摘要
贫困治理是基层治理能力和治理体系现代化的有机构成,其模式选择影响到精准扶贫的"最后一公里"。扶贫主体的权威性和扶贫客体的特定性、扶贫方式的运动性和扶贫目标的预定性、扶贫手段的强制性和扶贫成本的虚高性等是当前精准扶贫的典型特征。在具体的扶贫实践中,由于缺乏基础性和制度性的机制设计,部分地区出现精英俘获、扶贫致贫、内源式微和法治弱化等治理失灵问题。基于压力达标型体制、晋升锦标赛机制和村社行政化自治三重维度对贫困治理失灵的发生逻辑进行阐释,并以"柔性治理"为指向,从转变传统权威主义观,树立柔性扶贫理念;引进第三方团体,健全监督评估机制;强化增能赋权,建构农户话语权;推进"悬浮型政权"向"服务型政权"过渡和挖掘乡村资源价值,注重内源式发展等方面提出应对策略。
The governance of poverty is an organic component of grassroots governance capacity and governance system modernization,its mode selection affecting the"last mile"in precision poverty alleviation.Authority,objects specificity,mobility,goals presupposition,coercion,and the virtual high cost of poverty alleviation are typical characteristics of current poverty alleviation.In specific poverty alleviation practice,due to lack of basic and institutional mechanism design,some areas are confronted with problems such as elite capture,poverty caused by poverty alleviation,endogenous micro-division and weak rule of law.Based on the three dimensions of pressure-standard system,promotion tournament mechanism and village administration autonomy,the logic of poverty governance failure is explained and guided by"flexible governance",which changes the traditional concept of authoritarianism and establishes the concept of flexible poverty alleviation;It was proposed that a third party be introduced to improve supervision and evaluation mechanisms,that farmers be empowered to construct their discourse power;and that the transition from"suspended ruling"to"service-oriented ruling"be formed and the value of rural resources be explored with the focus on endogenous development.
The governance of poverty is an organic component of grassroots governance capacity and governance system modernization,its mode selection affecting the"last mile"in precision poverty alleviation.Authority,objects specificity,mobility,goals presupposition,coercion,and the virtual high cost of poverty alleviation are typical characteristics of current poverty alleviation.In specific poverty alleviation practice,due to lack of basic and institutional mechanism design,some areas are confronted with problems such as elite capture,poverty caused by poverty alleviation,endogenous micro-division and weak rule of law.Based on the three dimensions of pressure-standard system,promotion tournament mechanism and village administration autonomy,the logic of poverty governance failure is explained and guided by"flexible governance",which changes the traditional concept of authoritarianism and establishes the concept of flexible poverty alleviation;It was proposed that a third party be introduced to improve supervision and evaluation mechanisms,that farmers be empowered to construct their discourse power;and that the transition from"suspended ruling"to"service-oriented ruling"be formed and the value of rural resources be explored with the focus on endogenous development.
引文
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[21]谭英俊.柔性治理:21世纪政府治道变革的逻辑选择与发展趋向[J].理论探讨,2014(3):150-153.
[2]邢成举.压力型体制下的“扶贫军令状”与贫困治理中的政府失灵[J].南京农业大学学报(社会科学版),2016,16(5):65-73.
[3]周兰,吴声风.从粗放扶贫到精准扶贫--运动式治理下的风险防范[J].中国集体经济,2018(6):160-162.
[4]黄科.运动式治理:基于国内研究文献的述评[J].中国行政管理,2013(10):107-112.
[5]段洪波,张洪硕.改革开放40年扶贫开发历程与经验[J].河北大学学报(哲学社会科学版),2019,44(2):118-122.
[6]袁明宝.压力型体制、生计模式与产业扶贫中的目标失灵--以黔西南L村为例[J].北京工业大学学报(社会科学版),2018,18(4):19-25.
[7]赵振宇.强化扶贫领域监督执纪问责--以铁的纪律保障打赢脱贫攻坚战[J].中国纪检监察,2018(1):16-17.
[8]莫光辉,张菁.扶贫领域的腐败现象及精准反腐机制建构[J].学习论坛,2017,33(4):33-37.
[9]宫留记.政府主导下市场化扶贫机制的构建与创新模式研究--基于精准扶贫视角[J].中国软科学,2016(5):154-162.
[10]陈水生.从压力型体制到督办责任体制:中国国家现代化导向下政府运作模式的转型与机制创新[J].行政论坛,2017,24(5):16-23.
[11]李元,严强.治理式执行:压力型体制视角下的地方政府政策执行--基于A县治理中小学大班额的分析[J].江海学刊,2016(5):112-118.
[12]景跃进.政治社会学:主题、取向与学科[J].江苏社会科学,2003(6):77-83.
[13]祁志伟.新时代贫困治理的预设图景及国外经验借鉴[J].西南民族大学学报(人文社科版),2019,40(1):123-130.
[14]汪杰贵.基于村庄治理系统困境突破的村庄治理现代化路径:一个分析框架[J].农业经济问题,2018(9):85-95.
[15]王刚,白浩然.脱贫锦标赛:地方贫困治理的一个分析框架[J].公共管理学报,2018,15(1):108-121.
[16]廖业扬,李强彬.乡村威权型治理:一个概念性框架及其解释[J].行政论坛,2012,19(4):11-16.
[17]胡卫卫,杜焱强,于水.乡村柔性治理的三重维度:权力、话语和技术[J].学习与实践,2019(1):20-28.
[18]尚虎平,王春婷.政府绩效评估中“第三方评估”的适用范围与限度--以先行国家为标杆的探索[J].理论探讨,2016(3):12-18.
[19]胡卫卫.以柔性治理推进乡村振兴战略落地生根[N].社会科学报,2018-09-27(3).
[20]李莉.社会中心主义视角下的腐败治理--基于香港廉政公署年度报告(1974-2013)的解读[J].经济社会体制比较,2015(5):81-91.
[21]谭英俊.柔性治理:21世纪政府治道变革的逻辑选择与发展趋向[J].理论探讨,2014(3):150-153.