灾害应对中的央地政府间组织网络研究

Research on the Organization Network between Central and Local Governments in the Disaster Management

在灾害尤其是重大自然灾害应对过程中,中央与地方政府间的关系超越了常态科层结构,形成了具有更多动态性、柔性和适应性的组织网络,协同是这一组织网络的基本目标。文章以典型的自然灾害案例为基础,通过对央地政府间组织网络的可视化表达、关系分析和互动过程追踪,评价这一特殊组织网络的合作效果,寻求科层规则之外的协同促进策略。研究发现,灾害应对过程中央地政府间组织网络表现出一定程度的适应性特征,如组网时效性明显提高,中央与地方政府间的责任逐步明确,央地政府间价值观渐渐统一等,但高效协同效应仍未显现,表现为权力集中与分散的两难,价值认同与合作的不同步,权力高度集中于中央的组织网络裂解风险高,而权力责任下沉又导致了网络内大量组织之间联结断裂,地方政府间合作不足,角色确认、价值认同与适当的交往密度仍有待进一步培育。研究建议通过央地政府间组织网络结构的调整,使央地政府核心协调部门形成结构内聚关系,实现中央权威向地方的转移,通过省政府间的结构对等关系培育,提升地方政府间的协同性,同时发挥党的思想领导和政治领导作用,促进央地政府间思想与行动的统一生成。

In the process of responding to disasters especially major natural disasters,the relationship between central and local governments have transcended from bureaucratic form to a more dynamic,flexible and adaptable organizational network.Collaboration is the basic goal of this network.The study takes three natural disaster responses for example.The organization network between central and local government is analyzed using the tools of expression,relationship analysis and interactive process tracking.The efficiency of this organization network is evaluated and some synergy promotion strategies beyond the bureaucratic rules were provided.The study has shown such adaptive features as the higher efficiency of network forming,the gradual clearness of responsibilities between the central and local governments,and the gradual unification of values between the central and local governments.However,the efficient synergistic effect has not yet appeared,which is manifested as the dilemma of centralization and decentralization,the out-sync of value identification and cooperation,the high risk of collapse of high centralized organization network and the fracture of connection between a large number of organizations in decentralized organization network,and insufficient cooperation between local governments.Role recognition,value identification and appropriate communication density are still needing to be fostered.The study suggests forming a type of structural cohesion relationship between the key organizations of central and local government through adjustment the network structure of the central and local government organizations network,and promoting synergy among local governments by fostering structural equivalence relationship between local governments.At the same time,the empathy between the central and local governments could be formatted by the Political Leadership and Thought Leadership of the Communist Party of China.