条块职责转换的组织学分析:基于地方国土部门的实证研究

Responsibility Transformation between “Tiao” and “Kuai”——Histological Analysis Based on a Local Land Department

中国政策执行的一个重要特征是以属地发包代替职能部门的专业化管理,强调对政策实施的整体性问责。论文基于地方国土部门执法运作的考察,从组织学角度分析了条块职责转换的内在机理。研究发现,当前体制背景下多目标治理的灵活性需求,使利用业务指导权开展工作的职能部门时常难以胜任,表现出调节失灵;而将"条"的行政任务转化为"块"的中心工作并由此启动的运动型治理是针对常规治理失效而产生的替代机制。实践中,这一治理模式在降低体制运行成本的同时,可能造成职能部门的内在自主性无法确立、地方政府治理负荷加重及国家制度建设困难的组织后果。研究开启的职能部门新关注视角和结构优化路径,对于超越"中央"和"地方"及相应的"垂直管理"和"属地管理"认知窠臼具有重要的理论和实践价值。

An important feature of China s policy implementation is increasing the professionalismofthe functional departments in local governments.This includesthe responsibility to managepersonnel.We analyzed the internal mechanismsguidingthe law enforcement activities of a local government s land department.We found that the flexible demands of the authority system made it difficult for this functional department to carry out its business guidance work.This shows a failure to adjust to policy.Although responsibility transformation between tiao and kuai is an alternative mechanism and a governance mode that may lower operating costs,it also leads tounintended consequences.This research is important for both theory and practice in this area.