基层政府平台化转型与复杂性治理能力再生产--基于扎根理论的多案例研究

Platform-based Transformation of Grassroots Governments and Reproduction of Governance Capability in Response to Complexity:A Multi-case Study Based on the Grounded Theory

为了响应环境复杂性,需要兼顾双重回应性的基层政府出现了平台化转型的趋势。多数的平台研究围绕经济议题和企业组织展开,或囿于政府平台的技术属性和单一面向,执着于讨论政府的效率进阶和横向回应性,忽视了基层政府组织化平台实践、复杂性治理能力再生产过程和纵向回应性等议题。聚焦于条块结构在基层治理中面临的四对矛盾和“放管服”改革的前沿性变革,研究发现:平台通过服务的模块化设计和要素的系统性集成实现了政府组织复杂性治理能力的再生产,有效规避了条块结构的双重回应失灵问题。模块调适重构、部门嵌入协调、过程动态反馈、任务灵活分流、干部混编混岗和激励差异配置等六个微观机制在其中发挥了桥接的功效。文章强调,政府组织应对复杂性的关键在于积极地与之相处并成为一个活性系统。数字化平台和组织化平台的重点任务有所区别,但在功能上相互支撑,一道完成了对政府组织的“活化”。

In order to respond to the complexity of the environment,the grassroots government,which needs to take into account the dual responsiveness,has shown a trend of platform-based transformation.Most of the research focuses on economic and organizational issues,or is confined to the technical attributes and single aspect of government platforms.Others are devoted to discussing the government’s efficiency and its horizontal responsiveness,without looking into such issues as the government’s organizational platform practices,governance capability in response to complexity and its vertical responsiveness.Focusing on the four pairs of contradictions faced by the strip-block structure of grassroots governance and changes in the reform to streamline administration and delegate power,improve regulation and upgrade services,the paper finds that the platform has realized reproduction of governance capability in response to complexity through the modular design of services and the systematic integration of elements,thereby effectively preventing the failure of grassroots governance.Six micromechanisms,including module adjustment and reconstruction,embedded collaboration,dynamic feedback,flexible task distribution,cadre mixing,and incentive differential allocation,have played a bridging effect.The article emphasizes that the key for governments to deal with complexity is to actively adapt the environment and become a viable system.The key tasks of the digital platform and the organizational platform are different,but they support each other in terms of functions and achieve the“activation”of government institutions together.