领导高度重视:一种科层运作的注意力分配方式

Leaders Attach Great Importance:An Attention Distribution Approach of Bureaucratic Operation

在公共治理的实践中,"高度重视"普遍存在于领导话语体系之中,是一种有效的治理形式。本文将"领导高度重视"置于科层运作的注意力分配框架之中解释其逻辑过程。研究表明,"领导高度重视"是一种科层运作的注意力分配方式,是单一制大国理性官僚制治理框架建构过程中的客观存在,在避责式重视和邀功式重视两个维度下实现权威、人力和财力资源的倾斜性使用,但是,这种治理形式降低科层组织的专业化程度,容易形成"灭火"式组织文化和绩效误判,也延缓了非重视事件的"政策之窗"开启时间。因此,要确立有效且正当的注意力分配规则,用好"整体绩效评价"和"政策绩效评价"两大工具,避免领导重视演化成"为所欲为",实现"防火"而非"灭火"。

In practice of public governance,"highly attention" is an effective governance form which is ubiquitous in the leadership discourse system. This paper puts" Leaders attach great importance" into the attention distribution framework of bureaucratic operation to explain the logical process. The research shows that "Leaders attach great importance" is an attention distribution approach of bureaucratic operation. It objectively exists in the construction of the rational bureaucratic governance framework in a great unitary state and achieves the slanting use of authority, human and financial resources in the dimensions of the attention of avoiding risk and the attention of taking credit. However, this governance approach reduces the professional level of bureaucratic organizations. It is easy to shape the organizational culture of "firefighting" and easy to cause mis-judgement of performance. This governance approach may also delay the opening of the "policy window " for non-emphasis events. Therefore, the government should establish attention distribution rules with effective and legitimate orientation and take appropriate use of tools of "Overall Performance Evaluation" and "Policy Performance Evaluation". It should avoid leader's attention becoming "Do whatever you want" and achieve "fire prevention" rather than "firefighting".