整体性治理视域下行政审批局模式发展的困境与策略研究——以J省N县行政审批局为例

Research on the Problems Faced by Bureau of Administrative Review and Approval on the Mode and Corresponding Strategy from the Perspective of Holistic Governance——Take the Bureau of Administrative Review and Approval of N County in J Province as an Examp

行政审批制度改革是深入推进"放管服"改革、优化营商环境中的着力点之一,实践中行政审批制度改革产生了多种模式,其中行政审批局模式在重构审批体制、整合审批职能、再造审批流程和提高审批效率等方面更具彻底性和集中性,成为探索简政放权与审管分离改革的主要模式。然而,通过对具有代表性的J省N县行政审批局进行现场观察和深度访谈的质性研究后发现,行政审批局模式在层级整合、职能整合、公私整合和信息整合方面面临困境,如:缺乏中央层面的明确业务主管、审管脱节与工作负荷过重、公私合作与服务外包中的监管薄弱、平台重复建设与数据共享困难等。整体性治理理论提供了应对这些挑战的策略,可以从健全纵向管理体制、厘清机构职能定位、配套对外包组织的管理机制与统一信息平台建设等方面改进行政审批局模式以进一步优化营商环境。

The reform and improvement of the administrative review and approval system is the priority to promote the reform of"streamlining administration and delegating power to the lower levels"and optimize the business environment.The reform of the administrative review and approval system presents various modes,among which the mode of the administrative review and approval bureau is the most thorough and integrated one.It reconstructs the review and approval system,integrates the review and approval functions,reengineers the review and approval process,and improves the review and approval efficiency.Therefore,it has become the main mode of"streamlining administration,delegating power to the lower levels"and"separating review and management".However,through the qualitative research of on-site observation and in-depth interviews on the representative administrative approval bureau of N county in J Province,we find that the bureau of administrative review and approval faces difficulties in the integration regarding hierarchy,function,public-private,and information.Those difficulties are represented by the respects such as lacking clear supervision at the central level,the bad connection between review and approval,heavy workload,weak supervision of public-private partnership and service outsourcing,and the difficulty of platform construction and data sharing.The theory of holistic governance provides strategies to cope with these challenges.It can improve the mode of the bureau of administrative review and approval through perfecting the vertical management system,clarifying the function orientation of the organization,supporting the management mechanism of outsourcing organizations,and building a unified information platform,to further optimize the business environment.