嵌入式治理：技术嵌入东北边疆治理的理论基础、运行逻辑与实践样态

Embedded Governance: Theoretical Foundations, Operational Logic, and Practical Patterns of Technological Embeddedness in the Governance of China's Northeastern Borderlands

摘要

在强安全导向与高制度约束的边疆治理场域中，数智技术的引入并未引致治理结构的重构，而是表现为既有制度体系对技术的嵌入式吸纳及治理能力的渐进增强。基于结构性嵌入理论，文章构建“信息-组织-互动”三维分析框架，阐释数智技术嵌入既有治理体系的制度逻辑与运行机制。研究发现，东北边疆治理的智能化转型呈现以嵌入式吸纳为主导的特征：技术通过嵌入信息结构提升态势感知与风险识别效能，经由组织结构嵌入实现流程嵌套与基层负荷的动态调适，并在互动结构中借助平台化机制优化纵向传导与有限协同，从而形成一种以稳定性、可控性和能力增强为核心的嵌入式智能化模式。进一步分析表明，地区间资源禀赋、组织能力与制度执行条件不同，形成强管控型、调适型与协同型等差异化路径。文章从结构性嵌入视角揭示了边疆治理智能化转型的制度限度与能力生成机制，为理解边疆治理现代化的实践逻辑及自主知识体系建构提供理论参考。

Abstract

In the context of borderland governance-characterized by a strong security orientation and significant institutional constraints-the introduction of digital and intelligent technologies has not resulted in a fundamental restructuring of the governance system. Instead, these technologies have been assimilated within the existing institutional framework, leading to incremental enhancements in governance capacity. Drawing on structural embeddedness theory, this article develops a three-dimensional analytical framework-"information-organization-interaction"-to explain the institutional logic and operational mechanisms through which digital and intelligent technologies become embedded in established governance systems. The findings reveal that the intelligent transformation of governance in China's Northeast borderlands is dominated by a pattern of embedded assimilation. Specifically, technology enhances situational awareness and risk identification by integrating into information structures; facilitates procedural nesting and dynamic adjustment of grassroots administrative burdens through organizational embeddedness; and optimizes vertical transmission and limited coordination via platform-based mechanisms within interaction structures. Collectively, these processes give rise to an embedded model of intelligent governance centered on stability, controllability, and capacity enhancement. Further analysis indicates that variations in regional resource endowments, organizational capacities, and institutional implementation conditions have shaped differentiated pathways, including strong-control, adaptive, and collaborative models. From the perspective of structural embeddedness, this article reveals the institutional limits and capacity-generating mechanisms of the intelligent transformation of borderland governance, thereby providing theoretical insights into the practical logic of borderland governance modernization and the construction of an autonomous knowledge system.

关键词

边疆治理 / 智能化转型 / 结构性嵌入 / 东北边疆

Key words

borderland governance / intelligent transformation / structural embeddedness / northeastern borderlands of China

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基金资助

黑龙江省哲学社会科学研究规划重点项目“城乡融合进程中乡村治理现代化的制度梗阻与破解路径研究”(25ZZA001)