县级职能部门运作中卸责式监督的生成逻辑及其后果

Responsibility-shirking Supervision in the Operation of County-level Functional Departments:Generative Logic and Its Consequences

职能部门是各级政府的有机组成部分,探析职能部门从“尽责”到“避责”的转换逻辑与生成机制有助于深化对政府行为的认识。县级职能部门业务工作的推进常常受到科层体制“职责同构”的限制,尽管可以通过诸多变通机制加以纾解,但乡镇自主性的存在使得县级职能部门无法确保乡镇政府严格按照职能部门的要求落实工作。面对绩效考核与问责压力,县级职能部门依托领导小组机制,在推动“业务工作中心工作化”的同时实现了主体责任的转移,并辅以规范化的督导检查来保证业务工作落地落实,卸责式监督带来了县域监督泛化和乡镇责任超载的严重后果。应当将以领导小组机制为代表的政治统合制控制在适当的运行限度之内,同时强化问责制度和督导检查制度的弹性化取向,从而为基层治理提供更多的自主空间。

Functional departments are an organic part of governments at all levels.It is helpful to deepen the understanding of government behavior to explore the transition logic and generation mechanism of functional departments from"duty fulfillment"to"blame avoidance".The work of county-level functional departments is often restricted by the"isomorphic responsibilities"of the bureaucratic system.Although it can be relieved by many flexible mechanisms,the existence of township autonomy makes it impossible for county-level functional departments to ensure that township governments strictly follow the requirements of functional departments to carry out their work.Faced with the pressure of performance appraisal and accountability,county-level functional departments rely on the leading group mechanism to promote the"central work"while realizing the transfer of main responsibilities,supplemented by standardized supervision and inspection to ensure the implementation of operation service.Responsibility-shirking supervision has brought about serious consequences of generalization of county supervision and overload of township responsibilities.The political integration system represented by the leading group mechanism should be controlled within an appropriate operating limit,and the flexible orientation of accountability system and supervision and inspection system should be strengthened,so as to provide more independent space for primary-level governance.