“用科层反对科层”:河长制的运作逻辑、内在张力与制度韧性——基于上海市秦镇的实证分析

Bureaucracy Against Bureaucracy:Operational Logic,Internal Tension and Institutional Toughness of River Chief System--Empirical Analysis Based on Qin Town,Shanghai

通过“用科层反对科层”的方式打破原科层制组织存在的平级协调困境,从而解决河道治理的低效甚至无效问题,是基层政府在治理水环境问题时所采用的主要措施。在此治理过程中,科层组织内的平级协调关系被层级压力关系所取代,从而形成了水环境治理体系的高效运转。但重构的科层治理体系也形成了新的内在张力,即“块”的协调手段缺失、“条”的工作积极性衰减和基层社区工作的碎片化等。重构之后的水环境治理体系在将平级协调矛盾转换为层级治理压力时,也将治理任务转移到了科层体制之外,从而维持了科层体系的运作,形成了一定的制度韧性。

The main measures,which break through the dilemma of horizontal coordination existing in the original bureaucratic organization by means of“using the bureaucracy against the bureaucracy”in order to solve the low efficiency and even invalid problems of river regulation,are taken by the grass-roots government to deal with the water environment problems.In this process,the horizontal coordination relationship within the hierarchical organization is replaced by the hierarchical pressure relationship,thus it forms the efficient operation of the water environment governance system.However,the reconstruction of the bureaucratic governance system has formed a new internal tension,that is,the lack of coordination means of“block”,the decline of“article”work enthusiasm,and the fragmentation of grass-roots community work.However,when the reconstruction of water environment governance system turns the horizontal coordination contradiction into hierarchical governance pressure,it also shifts the governance task outside the hierarchical system.Therefore,these maintain the operation of the hierarchical system and form a certain degree of institutional resilience.