【作者】 郭海良；

【导师】 潘忠宇；

【作者基本信息】 宁夏大学 ， 民族地区公共管理， 2022， 博士

【摘要】 易地扶贫搬迁社区居住的群众,多数是老人、妇女和儿童,发展产业能力弱,就业技能比较低,促进增收难度大,搬迁进城后刚性支出明显增加,加大了返贫风险。习近平总书记高度重视搬迁群众发展,多次深入安置社区考察,作出了一系列重要指示。民政部等多部门联合出台了《关于做好易地扶贫搬迁集中安置社区治理工作的指导意见》,就搬迁社区治理与后期扶持进行了部署。因此,深入研究易地扶贫搬迁社区治理,总结巩固脱贫攻坚成果与乡村振兴有效衔接的成功经验,对于推动乡村振兴和共同富裕,探索中国式现代化道路有重大理论价值与实践意义。本文以云南省怒江州兰坪县为田野点,运用“借势赋能”这一分析框架对易地扶贫搬迁社区的治理之道、存在问题及易地扶贫搬迁社区治理的变革策略进行了系统分析。全文共分为六个部分,其中第一章为绪论,主要介绍了研究缘起与价值,研究综述,研究方法与田野点,以及研究的创新点与不足。第二章为核心概念、研究基础和分析框架。主要介绍了研究的易地扶贫搬迁、易地扶贫搬迁社区及易地扶贫搬迁社区治理的概念,突显了易地扶贫搬迁社区治理的独特性。同时介绍了研究的相关理论,在此基础提出了“借势赋能”的分析框架。第三章主要运用“借势赋能”从四个方面分析兰坪县易地搬迁社区的治道探索。详细论述了当地如何借助民族团结进步创建打造互嵌社区,铸牢中华民族共同体意识推动文化互嵌,乡村振兴推动经济互嵌,基层党组织的统合治理推动形成共建共享共治的治理格局。第四章从科层治理与政府错位,社会缺位与公共治理难题,社会问题社区化与公共服务短缺三个方面论述了当前兰坪县易地扶贫搬迁社区的治理困境。第五章提出了易地扶贫搬迁社区治理的变革策略,主要从推动社区治理体系和治理能力现代化,提高搬迁群众内生动力,提升基础设施与公共服务建设水平和创新后续扶持政策机制等四个方面提出了政策建议。第六部分为研究结论与展望。研究认为,易地扶贫搬迁群众通过借助国家政策高位政治势能来推动其从农村到城市的空间转换。空间转换是一个整体性概念,不仅是指物理空间的位移,也是居住地变迁后易地扶贫搬迁群众社会关系空间和意义空间的转换,这意味着易地扶贫搬迁群众的空间转换不再只是停留在具体的物理形态等表征上,还有隐匿在空间中的话语、符号、关系、权力等抽象的行动逻辑,从而呈现出对易地扶贫搬迁群众的社会空间进行治理实践的过程。在这一过程中,易地扶贫搬迁群众的社会空间在国家政策话语体系下进行规划、配置和完善,同时也会形成相应的空间资源剥夺和空间博弈等实践。通过治理的实践效果来看,空间转换重在促进易地扶贫搬迁群众的后续发展,是一次对易地扶贫搬迁群众社会空间品质的全方位提升。同时,通过各种政策措施积极推进搬迁群众与社区空间重构的良性互动及协调发展,打破城乡二元结构性因素,促进搬迁群众在城镇化生活中实现可持续发展的目标。因此,空间转换是实现易地扶贫搬迁群众实现共同富裕的一项治理实践,也是国家政策话语体系下具有明确目的和鲜明逻辑的一项治理成果。易地扶贫搬迁社区治理并不是一个静止的过程,而是一个由多元主体共同参与促进社区善治的动态性过程。在兰坪县搬迁社区治理中涉及不同的主体,包括了基层政府、物业管理公司和易地扶贫搬迁群众等主体,这些参与主体遵循着不同的行动逻辑推进搬迁社区的发展。基层政府遵循着“借势赋能”的行动逻辑进行政策的创新实践,主要面临着科层治理带来的政府错位、社会缺位带来的公共治理难题及社会问题社区化导致的公共服务短缺等方面的治理困境,这些困境都为基层政府推进搬迁社区治理发展带来压力,基层政府承担着搬迁社区空间的规划、实施和各种大小事务,是推进易地扶贫搬迁社区良性治理的重要主导者。对于易地扶贫搬迁群众而言,他们则遵循“重构—适应”的行动逻辑,其生存的物理空间、社会关系空间和意义空间完全与乡村社会不同,并发生了本质变化,这需要搬迁群众逐步接纳并适应。因此,在本文的研究中可以看到,易地扶贫搬迁社区治理实质上具有一种动态性,体现出了搬迁群众在短时间内的跨越式社会变迁和时空压缩下的生活模式转变。易地扶贫搬迁群众从最先的物理空间的生活条件和生计策略到最终意义空间的文化认同适应,各个适应阶段都反映了出了易地扶贫搬迁社区治理的困境,且各个阶段相互影响、相互作用,从而呈现出易地扶贫搬迁社区的治理过程是动态的、发展的。易地扶贫搬迁的全过程离不开政府的主导,是—个自上而下的政策探索与实践过程,即上级政府进行顶层设计并发布指令,由基层政府和社区委员会等具体实施,保证政策落地。由此不难看出,乡镇政府、县发改委、扶贫专干、社区及村组工作人员以及搬迁群众等就构成了推动易地扶贫搬迁顺利开展的多元主体,乡镇政府的人员配置、部门分工、组织形式、执行力度与方式及搬迁机构、人员构成与执行人员的理论业务水平、实践执行能力,都会显著影响搬迁政策的落实情况。除此之外,科层制的纵向传导和跨部门的横向联动也在一定程度上削弱了基层乡镇政府的话事权和社区治理的威权结构,甚至还会淹没搬迁群众的真实诉求。在这种情况下,多元主体间因缺乏有效的沟通协调机制无法形成合力,使得部分政策被简单阐释和机械执行,导致政策执行出现偏差。易地扶贫搬迁是真正可以惠及广大搬迁群众,切实推动共同富裕和县域城乡融合发展的重要政策安排,而易地扶贫搬迁社区治理是在巩固这一成果的过程中推进搬迁群众迈向美好生活的重要一步。因此,提升易地扶贫搬迁社区治理效能,还要进一步加强党建引领以完善科学的社区治理体系,构建多元主体参与的社区治理机制,增强文化建设以实现良好的社区治理氛围。激发搬迁群众的内生动力,逐步实现产业就业创业组织化。要强化公共服务与基础设施建设过程中政府的责任,进一步拓宽资金来源渠道保障易地扶贫搬迁社区可持续发展,积极培育有利于本土发展的社会组织介入到易地扶贫搬迁社区治理的日常服务之中。同时要因地制宜构建利于政策反馈闭环的科学机制,持续完善后续扶持政策,提高执行主体的执行能力和政策执行目标群体参与度,从而实现易地扶贫搬迁群众“稳得住,能致富”的目标。更多还原

【Abstract】 Most of the people living in the poverty alleviation relocation communities are the elderly,women and children.Their industrial development ability is weak,their employment skills are relatively low,and it is difficult to promote income growth.After relocation to cities,rigid expenditure has increased significantly,increasing the risk of returning to poverty.The Ministry of Civil Affairs and other departments jointly issued the Guiding Opinions on Improving the Governance of Poverty Alleviation Relocation Communities,and made arrangements for community governance and later support.Therefore,it is of great theoretical value and practical significance to seriously study the governance of poverty alleviation relocation communities and summarize the successful experience of consolidating the achievements of poverty alleviation and effectively linking them with rural revitalization,to promote rural revitalization and common prosperity,and to explore the path of Chinese path to modernization.The author takes Lanping County,Nujiang Prefecture,Yunnan Province as a case study,and uses the analytical framework of "empower by taking advantage of opportunities" to make a theoretical analysis of the experience of governance of poverty alleviation relocation communities.The full text is divided into six parts,the first part is the introduction,which mainly introduces the origin and value of the research,research overview,research methods and field points,as well as the innovation and shortcomings of the research.The second part is the core concept,research basis and analysis framework.It mainly introduces the concepts of poverty alleviation relocation,poverty alleviation relocation communities and governance of poverty alleviation relocation communities,highlighting the uniqueness of governance of poverty alleviation relocation communities.At the same time,it introduces the relevant theories of the study,and on this basis,it puts forward the analytical framework of"empower by taking advantage of opportunities".The third part mainly uses "empower by taking advantage of opportunities" to analyze governance exploration of poverty alleviation relocation communities in Lanping county from four aspects.The author discusses in detail how to build an embedded community with the help of national unity and progress,build a strong sense of the Chinese national community,promote cultural integration,promote economic integration through rural revitalization,and promote the formation of a governance pattern of joint construction,shared governance through the unified governance of grass-roots party organizations.The fourth part discusses the governance dilemma of the poverty alleviation relocation communities in Lanping County from three aspects:bureaucratic governance and government dislocation,social vacancy and public governance problems,social problems communitization and public service shortage.The fifth part puts forward the reform strategy of governance of poverty alleviation relocation communities,mainly from four aspects:promoting the modernization of community governance system and governance capacity,improving the endogenous power of relocated people.improving the level of infrastructure and public service construction,and innovating the follow-up support policy mechanism.The last part is conclusion and research outlook.The author argues that the relocated people of poverty alleviation relocation communities can promote their spatial transformation from rural to urban areas by taking advantage of the high political potential of national policies.Spatial transformation is a holistic concept,it refers not only to the displacement of physical space,but also to the transformation of social relationship space and meaning space of the relocated people after the change of residence,which means that the spatial transformation of the relocated people is no longer just a representation of specific physical forms,but also abstract action logic such as words,symbols.relationships,and powers hidden in space,Thus,it shows the process of governance and practice of the social space of the displaced people.In this process,the social space of the relocated people for ex situ poverty alleviation will be planned,configured and improved under the national policy discourse system,and the corresponding practices of spatial resource deprivation and spatial game will also be formed.From the practical effect of governance,space transformation focuses on promoting the follow-up development of the relocated people.and is an all-round improvement of the social space quality of the relocated people.At the same time.through various policies and measures,we will actively promote the positive interaction and coordinated development between the relocated people and the space,break the urban-rural dual structural factors,and promote the relocated people to achieve the goal of sustainable development in their urbanization life.Therefore,spatial transformation is a governance practice to realize the common prosperity of the relocated people and help the poor in other places.It is also a governance achievement with a clear purpose and clear logic under the national policy discourse system.Governance of poverty alleviation relocation communities is not a static process,but a dynamic process in which multiple subjects jointly participate in promoting good governance of poverty alleviation relocation communities.Different subjects are involved in the relocation governance of Lanping County,including grassroots governments,property management companies and relocated people.These participants follow different action logic to promote the development of relocation.Grass roots governments follow the action logic of "empower by taking advantage of opportunities" to carry out policy innovation and practice.They are mainly faced with governance dilemmas such as government dislocation caused by bureaucratic governance,public governance problems caused by social vacancy.and shortage of public services caused by the communization of social problems.These dilemmas have brought pressure on grass-roots governments to promote the development.Grass roots governments undertake the planning and implementation of relocation space,and various large and small affairs,It is an important leader in promoting sound governance of relocation and relocation for ex situ poverty alleviation.The relocated people follow the action logic of "reconstruction adaptation".For the relocated people,their physical space,social relationship space and meaning space are completely different from those of rural society,and have undergone essential changes,which requires the relocated people to gradually accept and adapt.Therefore,in this study,it can be seen that the governance of poverty alleviation relocation communities has a dynamic nature in essence,which reflects the life mode transformation of the relocated people under the leapfrog social change and space-time compression in a short period of time.From the living conditions and livelihood strategies of the first physical space to the cultural identity adaptation of the final meaning space,all adaptation stages reflect the plight of the governance of poverty alleviation relocation,and each stage will affect each other,thus showing that the governance process of poverty alleviation relocation is dynamic and developing.The whole process of poverty alleviation and relocation cannot be separated from the leadership of the government.It is a top-down policy exploration and practice process,that is,the superior government conducts top-level design and issues instructions,which are specifically implemented by the grassroots goverument and community committees to ensure the implementation of policies.It is not difficult to see that township governments,county development and reform commissions,poverty alleviation specialists,community and village group staff,and relocated people constitute the multiple subjects to promote the smooth development of poverty alleviation relocation.The staffing,division of labor.organizational form.implementation strength and methods of township governments,as well as the theoretical business level and practical implementation ability of relocation institutions,personnel composition,and implementation personnel,Will significantly affect the implementation of the relocation policy.In addition,the vertical transmission of bureaucracy and the horizontal linkage of cross departments also weaken the power of grass-roots township governments and the authoritarian structure of comunity governance to a certain extent,and even submerge the real demands of the relocated people and block their channels.In this case.multiple subjects can not form a joint force due to the lack of effective communication and coordination mechanism,making some policies simply explained and mechanically implemented.even leading to deviation in policy implementation.Poverty alleviation relocation is an important policy arrangement that can really benefit the relocated people,and effectively promote conunon prosperity and urban-rural integration development at the county level.Governance of poverty alleviation relocation communities is an important step to promote the relocated people to a better life in the process of consolidating this achievement.Therefore,to improve the governance effectiveness of poverty alleviation relocation communities,we need to further strengthen the leadership of the Party building to improve the scientific community governance system.build a community governance mechanism involving multiple subjects,and enhance cultural construction to achieve a good community governance atmosphere.At the same time.it will stimulate the endogenous power of the relocated people and gradually realize the organization of industrial employment and entrepreneurship.At the same time.it is necessary to strengthen the responsibility of the government in the process of public services and infrastructure construction,further expand the source of funds to promote the sustainable development of poverty alleviation relocation communities,and actively cultivate social organizations conducive to local development to participate in the daily services of poverty alleviation and relocation people.Finally,we need to build a key mechanism that is conducive to policy feedback closed-loop according to local conditions,continue to improve follow-up support policies,improve the executive capacity of the executive body and the participation of policy implementation target groups,so as to achieving the goal of "being stable and becoming rich" in poverty alleviation relocation communities.更多还原