科层组织如何实现应急状态下的组织韧性?——基层公共组织应对重大突发公共卫生事件的案例分析

How Bureaucratic Organizations Achieve Organizational Resilience in Emergencies?A Case Study on the Adaptive Processes of Local Public Organizations to Major Public Health Crises

应急准备和组织冗余受到计划外变化和成本因素的制约,组织韧性因此成为应对急时(1)不确定性的重要方式。本文以A省C市和D市应对局部散发疫情过程为案例,发现组织结构功能切换和嵌入式组织动员有助于基层公共组织实现急时组织韧性。镇街及以上层面形成了从常规科层组织到急时任务型组织、虚实结合的弹性组织体系,以便平衡常规任务维持和急时任务强化的双重目标;镇街及以下层面运用平时的党建和社区建设路径,动员体制内外成员,提高了平时和急时组织韧性。通过着眼于基层公共组织整体韧性,本研究有助于将应急韧性研究拓展到应急管理体系本身,形成公共组织与社会主体联动的韧性网络完整图景,形成急时韧性根植于平时韧性的纵深视角。从实践上,研究有助于强调应急预案准备以外的应急韧性训练和准备,实现一种平急结合的弹性化危机应对格局。

Emergency preparedness and organizational redundancy in emergency management are important but challenged by unplanned changes and constrained by costs respectively.Therefore,organizational resilience has become an important way to deal with emergency uncertainty.Taking the handling of local outbreaks of the COVID-19 virus at town/subdistrict-and-below levels of the city C and D in A province as cases,this paper finds that flexibility of organizational structure and functions combined with embedded organizational mobilization have improved the resilience of local public organizations.The town/subdistrict-and-above levels have formed an adaptive organizational system integrating conventional bureaucracies with emergent task-oriented organization,so as to balance the dual goals of fulfilling regular tasks and urgent tasks.The town/subdistrict-and-below levels activate and leverage routine mobilization practices,involving members inside and outside the establishment,to improve the local governance resilience.This study may help form a more complete picture of a resilience network linking public organizations with social actors,and a more deepening insight of resilience formation in organizational routines.In practice,the research helps to focus on organizational resilience capabilities other than emergency plan and preparation.