嵌入性失衡破解：全过程人民民主的县域效能生产机制

——基于昆明市晋宁区双轨治理创新的政策实验

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中图分类号：D625 文献标志码：A 文章编号：1004-390X（2025）05-0001-05

Abstract： In county-level governance， whole-process people's democracy faces a spatiotemporal embedding imbalance between institutional supply and governance demands， this paper confronted the " formalization-fragmentation-placeholding” maladies aflicting county-level democracy by dissecting Yunnan's Jinning District“Home Visits Connecting Hearts + Station Empowerment" model. It exposed the glaring supply-efficiency gap between the lofty demands of whole-process people' s democracy and the perfunctory reality： representatives reduced to ceremonial votes， public-opinion channelsclogged， oversight mechanisms hollowed out.To pierce this deadlock，this paper critically adapted and deeply localized Kingdon's Multiple Streams Theory， forging a surgical analytical frameWork that integrates the Problem Stream-Policy Stream-Political Stream with a Procedure Chain and Flexible Empowerment. Within this frame， this paper traced the textual evolution of Jinning's“ThreeMust-Visit”rule，the logic behind professonal representative workstations，and the core of its standardized home-visit protocol. This study deployed triangular cros-validation—quantitative metrics， qualitative deep-dives，and tangible field evidence—to present， with clinical precision，the true efficacy of this institutional innovation. Finally， it decoded the democratic leap in western counties： under severe spatiotemporal compresson， the dual engines of technological enablement and cultural translation yield a refined balance of differential empowerment. Building on these insights， it advocated establishing county-level“Policy Laboratories”and modularizing institutional outputs as breakthrough pathways for replicable， full-process democratic governance.

Keywords： county-level democracy; institutional embedding; policy laboratory; whole-process people's democracy

在推进国家治理现代化的进程中，县域民主实践却陷入“程序空转”的困境：代表履职停留于“举手仪式”，民意诉求在部门壁垒中散落成碎片，监督机制沦为“纸面文章”。（剩余6514字）