街道办事处职能定位逻辑:基于“服务压力-行政动力”的分析框架

Logic of Functional Orientation of Sub-district Offices:An Analytical Framework on“Service Pressure-Administrative Impetus”

街道办事处体现了我国城市管理中独具特色的制度创新。为适应国家宏观政策对社会治理与公共服务的日益重视,需要对街道办事处职能定位的逻辑进行深入探究。从街道办事处初设的实践历程考察,其职能定位有两个方向:一是“行政性”逻辑,二是“服务性”逻辑。如何对这两个方向进行有效区分是研究的关键。基于“服务压力-行政动力”的二维分析框架,从街道办事处的公共服务能力与行政动力两个角度切入,在回溯其发展历史的基础上,认为不能单纯地从某一方面对街道办事处的职能进行定位,而应该以一种动态演进的视角予以审视,伴随着服务压力与行政动力在特定历史时期不同的组合方式,街道办事处的职能定位也随之发生改变。当两种“力”处于同一状态时,街道办事处权责匹配清晰,职能定位明确;当两种“力”处于分离甚至相反的状态时,街道办事处权责匹配失衡,职能定位模糊,并进而影响其功能的发挥。

The sub-district office system is a unique institutional innovation in the urban management in China.To adapt to the increasing focus of national macro policies on social governance and public service,it requires an in-depth analysis on the logic of functional orientation of sub-district offices.From the initial purposes of sub-district offices,their function orientations mainly include two aspects:one is the administrative logic;second,it is the service-oriented logic.The key lies in how to effectively distinguish these two aspects.Based on the two-dimensional analysis framework on“service pressure-administrative impetus”,the analysis on the sub-districts from both the public service capacity and the administrative impetus perspectives as well as the review on its development history,this paper holds that the functions of sub-districts should not be reviewed from only one certain perspective.Instead,it should be examined from a dynamic evolution perspective.With the different forms of combination between service pressure and administrative impetus in a specific historical period,the functions of sub district offices also change accordingly.When the two“forces”work in synergy,the functions of sub district offices will be clearly defined with clear match of their power and responsibilities.When the two“forces”are mismatched or even contradict with each other,the functions of sub-district offices will be ambiguously defined with mismatch of their power and responsibilities,which will affect them to perform their functions.