应用强度:技术治理效率悖论的一种新解释——基于B市“12345”热线的实践分析

Application Intensity:A New Explanation of the Paradox of Technical Governance Efficiency——An Empirical Analysis of the"12345"Hotline

在基层治理实践中信息技术的应用不一定能带来治理效能的有效提升。既有的技术限度、技术缺陷、制度供给和应用边界的视角未能充分解释这一效率悖论问题,通过对B市“12345”热线的实践分析,提出应用强度的新解释视角。基层治理可以分为基层政府自主进行的“一阶治理”和上级政府转办基层政府进行的“二阶治理”两个层次,“12345”热线是“二阶治理”的一种实现形式。在常规应用强度下,“12345”热线主要回应“一阶治理”的溢出事务,在基层治理中发挥补充功能;而在高强度应用下,“12345”热线大幅提升了“二阶治理”的回应性,使其吸纳了大量的群众诉求,产生了对“一阶治理”的替代效应,进而导致基层治理的效率损耗,具体表现为高治理成本与事务细碎性的矛盾以及治理压力加大与治理重心上移的悖论。从技术治理应用强度的视角可以发现,通过技术治理增强自上而下的行政管理进而强化基层政府回应性的治理路径具有一定的局限性,需要在行政管理与基层政府治理自主性之间建立平衡。

In the practice of grassroots governance,there is an efficiency paradox that the application of information technology does not improve governance efficiency.The existing perspectives of technical limitations,technical defects,institutional supply,and application boundaries fail to fully explain this problem.Through a practical analysis of the“12345”hotline in city B,a new perspective of application intensity is proposed.Grassroots governance can be divided into two levels:“first-level governance”carried out independently by the grassroots government and“second-level governance”carried out by the higher-level government transferred to the grassroots government.The“12345”hotline is a form of realization of“second-level governance”.Under the intensity of conventional applications,the“12345”hotline mainly responds to the overflow affairs of“first-level governance”and plays a supplementary function in grassroots governance.With high application intensity,the“12345”hotline has greatly improved the responsiveness of the“second-level governance”,allowing it to absorb a large number of citizens’demands,resulting in a substitution effect on the“first-level governance”,which in turn led to the efficiency loss of grassroots governance.It is specifically manifested as the contradiction between high governance costs and the fragmentation of affairs,and the paradox of increasing governance pressure and shifting the focus of governance.From the perspective of the application intensity of technological governance,we can see that the governance path of enhancing top-down administrative control through technical governance and then strengthening the responsiveness of the grassroots government has limitations.It is necessary to establish a balance between administrative control and grassroots autonomy.