挂图作战:科层组织如何完成难点任务?——基于违法建设综合整治的个案研究

Operations According to the Map: How to Accomplish Difficult Tasks for Bureaucratic Organizations——A Case Study on Comprehensive Renovation of Illegal Construction

科层组织中不同类型任务对应着不同推动逻辑,而难点任务的完成逻辑缺乏专门关注。难点任务与一般任务、专项任务和重点任务之间存在很大的交叉重叠概率,但其在艰难程度(问题复杂性不断内卷和解决成本显著边际递增)上又明显区别于其他任务类型。实践中,科层组织往往将挂图作战作为难点任务落实的核心推动机制。本文基于违法建设综合整治个案的深度观察,在呈现难点任务如何生成的基础上,描述了基层政府如何绘制责任图、分布图、进度图和资源图,并运用倒逼压实、任务牵引、集中发力和腾笼换鸟技术进行难点任务的治理过程。研究发现,挂图作战包含了目标责任制、行政包干制、小组治理和运动式治理等多种运作逻辑,是一种兼具计划性、针对性和灵活性的难点任务落实机制,但其也可能诱发寻租腐败、心理压力和资源枯竭等组织冲突。挂图作战机制拓展了不同类型任务如何完成的地方性知识,有助于理解科层组织中难点任务的推进逻辑。

Different types of tasks in bureaucratic organizations correspond to different driving logics.Whereas there has been a lack of special attention to the completion logics of difficult tasks,there is a high probability of an overlap between difficult tasks and routine tasks,in comparison to special tasks and key tasks.But difficult tasks are clearly different from other task types in terms of difficulty(the complexity of the problem is more involved and the cost of solving it is significantly increased).In practice,operations according to the map(OAM)are often regarded as the core mechanism to promote the implementation of difficult tasks.Operations according to the map were originally used to describe the situation in which the main generals in military wars took appropriate military strategies and plans according to the military map.Grassroots officials make the analogy between the completion of difficult tasks and military wars.Just like military operations,the completion of a difficult task also requires close attention to combat objectives,a mastering of the working methods,and a scientific arrangement of the troops.Only in this way can problems and tasks be implemented.The two core variables of"OAM"are"chart"and"war."Accurate and detailed charts are the basis and premise for operations,and flexible and appropriate tactics are the key and core of the operations.Based on a case study on the comprehensive renovation of illegal construction in village D of BY District,this article describes how the grassroots government draws a responsibility map,a distribution map,a progress map,and a resource map,and how it uses backward compaction,task traction,concentrated efforts,and freeing of the birds in the cage to deal with difficult tasks.It is found that OAM contains many kinds of operation logics,such as a target management responsibility system,administration subcontracting,group governance,and yardstick competition.It is an implementation mechanism for difficult tasks with the characteristics of planning,relevance,and flexibility,but it may also induce organizational conflicts,such as rent-seeking corruption,psychological pressures,and an exhaustion of resources.The OAM mechanism expands local knowledge about how to complete different types of tasks and it helps to understand the completion logic of difficult tasks in bureaucratic organizations.OAM in this study is mainly used to describe the implementation logic of difficult tasks at the district,town,and village levels,with an emphasis on how the bureaucratic tasks are implemented from a meso-perspective.Although the case discussed in this article is illegal construction,in fact,the completion of many other difficult tasks is also in line with OAM,such as poverty alleviation and environmental governance.It is worth noting that researchers tend to focus on the"tactics"aspect and pay less attention to the drawing of the"war map".In fact,the reason why many difficult tasks are difficult to implement lies not in the inadequacy of the"tactics"but in the inaccuracy of the"war map".For example,the map drawn in the process of targeted poverty alleviation is suspended in the process of grassroots social governance and village social life,which,even with exquisite"tactics",may lead to difficulties in truly implementing bureaucratic tasks.To know both the enemy and yourself,to win the difficult battle without the danger of defeat.If the"war map"is inaccurate or wrong,no one can guarantee final effective implementation of a difficult task.