中间层级何以保障政府运转?——政府过程中的副职领导研究

How Can the Intermediate Tier Guarantee the Operation of Government?A Study on Deputy Leaders in the Process of Government

【问题】中国副职领导官员通过怎样的机制介入政府过程?作为中间层级的政府群体,他们如何处理政府运行中的组织目标和执行能力的关系?副职领导官员对于理解政府治理有着怎样的理论与实践意义?【方法】论文基于田野调查和访谈,重点关注政府中的互动“事件”,依据“条条—块块”“上层—下层”“重要—日常”维度获得了19个案例,并进行了扎根理论分析。【发现】副职领导官员凭借分管、集体化和复杂性特征成为兼顾组织目标和执行能力的“保障性耦合枢纽”,并表现出三种机制:其一,方案转化机制,即结合价值目标和能力水平议定行动方案;其二,激励统率机制,即在上级授权之下动员、组织和引导下属官员;其三,调适纠偏机制,即对组织运行的潜在问题进行调节。这些机制使政府过程富有层层过渡的弹性,把压力化指标不断转化,并将激励链条贯穿于组织网络之中。【贡献】组织不会一直保持均衡结构,而中国情境中的副职领导官员能够使政府组织实现动态平衡,启示了中间层级研究的价值。论文审视了副职领导官员群体的重要性,揭示了他们在中国科层组织中的独特作用:作为积极的集体性行动者,副职领导官员串联协同各个层级,将政府有效运转起来。

Motivation:In which ways do China's deputy leaders intervene in government processes?As the intermediate-tiered government group,how do they deal with the relationship between the organizational goals and the executive capacity in the operation of government?What is the theoretical and practical significance of deputy leaders in understanding government governance?Methodology:Based on field investigation and interviews,the paper focuses on interactive“events”in government.It presents 19 cases according to the dimensions of“tiao-kuai”,“upper level-lower level”and“important events-daily events”,and makes grounded theoretical analyses of these materials.Findings:China's deputy leaders as a group have become a“Supportable Coupling Hub”that takes into account organizational goals and capabilities.They operate three mechanisms.The Scheme Transformation Mechanism formulates the action plan according to the organization's goals and levels of ability.The Incentive and Leadership Mechanism mobilizes,organizes,and guides subordinate officials under the superior's authority.And,the Adjusting and Corrective Mechanism adjusts potential problems in the organization's operations.These mechanisms make government processes flexible.Issues are conducted level by level,continuously transforming pressured indicators,and running incentive chains throughout the organizational network.Contribution:Although organizations are not always balanced,China's deputy leaders can achieve a dynamic balance,thus highlighting the value of researching middle tier officials.This paper examines their importance and reveals their unique role in the bureaucracy.They are actors who can operate collectively and coordinate with all levels of government.