行政组织行为分化:社会组织直接登记制度的地方政策执行阻滞--基于H省的实证研究

Administrative Organization Behavior Differentiation:The Local Policy Implementation of Social Organization Direct Registration System is Blocked—Based on the Empirical Research of H Province

社会组织直接登记制度的地方政策执行面临着综合监管失灵与增速放缓背后社会组织能力难以提高的现实问题。选取政策执行的组织视角,以资源、目标与激励为核心要素,构建一个统合性的理论框架,对H省不同层级政府、不同职能部门进行追踪观察,剖析直接登记制度政策执行的微观运行过程。研究发现,资源约束的差异性、行为目标的异质性、行为激励的非均衡性促使行政组织行为分化:民政部门以责任风险防控替代社会组织高质量发展目标,采取“选择性执行”的行为策略,对直接登记范围进行主观收缩;相关职能部门以核心业务诉求取代社会组织监管目标,通过“象征性参与”的行为策略,消极对待社会组织综合监管。上述行为策略导致H省社会组织直接登记制度的政策目标消解,政策执行陷入阻滞状态,从而揭示条块结构体制下地方政府社会组织治理的碎片化现状。

The local policy implementation of the direct registration system of social organizations is faced with the practical problem that it is difficult to improve the capacity of social organizations behind the failure of comprehensive supervision and the slowdown of growth rate.This paper selects the organizational perspective of policy implementation,takes resources,goals and incentives as the core elements,constructs an integrated theoretical framework,tracks and observes different levels of government and different functional departments in H Province,and analyzes the micro operation process of policy implementation of direct registration system.It is found that the differences of resource constraints,the heterogeneity of behavioral goals,and the imbalance of behavioral incentives promote the differentiation of administrative organizations’behaviors.Civil affairs departments replace the highquality development goals of social organizations with responsibility risk prevention and control,adopt the behavioral strategy of“selective execution”,and subjective shrink the scope of direct registration.Relevant functional departments replace the supervision target of social organizations with core business demands,adopt the behavior strategy of“symbolic participation”,and treat the comprehensive supervision of social organizations negatively.The above behavioral strategies lead to the dissolution of the policy objective of the direct registration system of social organizations in H Province,and the implementation of the policy is blocked,thus revealing the fragmentation of local government governance of social organizations under the block structure system.