重心下移的组织重塑:城市基层治理创新的一个理论概括——以Q市城阳区“吹哨报到联包”改革为例

Organization Remolding by the Shift of Governance Focus:A Theoretical Summary of Governance Innovation in Urban Primary-level——A Case Study of the Reform of“Whistle-blowing in Streets and Townships,Reporting of Departments,Joint Responsibility of Leaders”in Chengyang District of Q City

基层的条块矛盾因无法实现治理资源与治理需求的有效配置而消解了政府的回应力,具体表现为信息不对称致使条线不明治理需求,权责不对等致使街道不具治理资源,协调不到位致使条块不备回应效能。为了摆脱基层政府回应力消解的困境,实现条块整合,Q市城阳区的“吹哨报到联包”改革在不改变治理资源所有权的情况下,通过优化组织设置,使固化规则面向基层问题;推进权力下放,使权力弱势实现权责一致;开展部门下沉,使行动失调转为统筹协调,探索出了实现重心下移的新路径。此项改革以实现重心下移为目标,对以“规则—权力—行动”为内在逻辑的科层组织进行一定程度的整合优化,通过问题导向弥补规则至上、双向制约弥补单项控制、协同合作弥补单一行动的方式,增强了基层政府对社会需求的回应力。

The contradiction resulted from tiao-kuai relation at the primary-level,as it fails to achieve an effective allocation of governance resources and needs,dispels the response of the government.To be more specific,the information asymmetry leads to the lack knowledge of governance needs of the lines;the unequal rights and responsibilities result in the lack of governance resources of the streets;the inadequate coordination renders the lack of response efficiency of the grass-roots level.To cope with the resolution of the grass-roots governments respond and realize the integration,the reform of“Whistle-blowing in Streets and Townships,Reporting of Departments,Joint Responsibility of Leaders”in Chengyang District of Q City,without changing the ownership of governance resources,optimizes the organization setting to make the solidified rules target to the grass-roots problems,promotes the shift of power to realize the integration of power and responsibility,and channels departments to the primary-level to turn the action disharmony into overall coordination,which thus has explored a new way to shift the governance focus.This reform aims to following:1)shift the governance focus;2)integrate and optimize the bureaucratic organizations with“rule-power-action”as the internal logic to a certain extend;3)enhance the response of primary-level governments to social needs by making up for rule supremacy,two-way restriction,single control and collaborative cooperation.