理解科层组织中的副职:一项中国公共管理研究的新命题

Understanding Deputy Positions in Bureaucratic Organization:A New Proposition in the Study of Public Administration in China

副职是官僚体制运作体系的重要组成部分,涉及公共政策的议程设置、制定和执行等全过程。然而,中西方科层组织构建逻辑与运作方式存在的本质差别,决定了副职研究议题的显著性程度。西方国家存在政务官与事务官的区分,其科层体系中的副职多处于从属地位,承担辅助性的角色,重要性相对而言并不明显。相比之下,中国科层体系中的副职在组织运作中发挥着不可或缺的作用,需要从多重维度理解科层组织中的副职。首先,副职的配置是行政事务适配与政治晋升激励双重驱动作用的结果;其次,结合中国治理情境,本文提出副职具有参谋辅助、制约监督、领导执行、凝聚共识、问题纠偏等五项功能,初步厘清了副职的功能边界;最后,进一步建构出影响中国副职运作过程的整体性框架,包括体制结构的刚性规制(组织类型、层级架构、管理幅度)、组织环境的柔性调适(与正职领导、其他副职、分管部门领导的关系)和个体特质的偏好适配(自身性格、专业匹配)等因素。未来需要从中国制度情境和治理实践出发,持续跟进更多有关副职的实证研究,回应与副职相关联的复杂场景和问题,致力于探索此项极具中国特色的本土性命题。

Deputy is an integral part of the bureaucratic system operation system.There are essential differences in the construction logic and operation mode of Chinese and Western bureaucratic organizations,which determine the significance of their research topic of the deputy.The article finds that the configuration of deputy posts results from the dual driving effect of administrative affairs adaptation and political promotion incentives.It is proposed that deputy posts have five functions:Assistance,Restriction,Leadership,Consensus Building,Problem Correction.This study further constructs the holistic framework of influencing the operation process of Chinese deputy post,including the system structure of the rigid regulation(type of organization,hierarchical structure,management range),flexible adjustment of the organizational environment(relationship with the head of the department,other deputy and the head of the subordinate department),preference adaptation of individual traits(personalities,professional matching)and other factors.The researchers need to start from the perspective of China’s institutional context and governance practice,devote theirselves to exploring this topic with Chinese characteristics.