科层还是自治:任务专业化、治理情境与自治组织运行机制

Hierarchy or Autonomy:Task Specialization,Governance Context,and Autonomous Organization Operating Mechanism

学界对于自治组织行政化的讨论,大多集中于任务的数量以及行政属性。以剩余控制权为视角阐述对科层制、政社合作、自治与多中心治理这三种模式的特征以及任务过程,尝试更为整体地理解不同社区治理模式,之后再以“任务专业化—任务数量”的分析框架,将自治组织结构分为四种,分别为科层组织、购买服务、津贴补助和居民自治,并运用多案例比较分析方法呈现和分析不同的组织架构的差异性,研究结果表明:为了完成专业化的任务会使得自治组织依赖外部资源,同时内部体系科层化趋势明显。在专业化程度较高的任务下,自治组织科层化成为一种合理选择。“科层”和“自治”只是自治组织在基层治理过程中的运行方式与属性,行政化并非是政府单纯下派行政任务而导致的结果,“科层化”也不应当被看作是必须要去除的负面现象。科层化组织架构在本质上更有效率,尤其是面对专业化的多任务的治理情境。

The academic discussion on the administrative nature of autonomous organizations mostly focuses on its number of tasks and its administrative attributes.From the perspective of residual control rights,this article elaborates on the characteristics and task processes of three models:bureaucratic system,political and social cooperation,autonomy and multi-center governance.It attempts to gain a more comprehensive understanding of different community governance models.The article,with an analysis framework of“task specialization-task quantity”,divides the autonomous organizations into four types:hierarchical type,service purchase,subsidy,and resident autonomy.It further adopts a multi-case comparative analysis method to present and analyze the differences in different organizational structures.The results show that 1)autonomous organizations,in order to complete specialized tasks,will rely on external resources,while the trend of internal system stratification is obvious;2)the hierarchical structure of autonomous organizations,in coping with tasks with a high degree of specialization,has become a reasonable choice.Both“bureaucracy”and“autonomy”are only the operational methods and attributes of autonomous organizations in the primary-level governance;administerization is not the result of simply assigning administrative tasks by the government;“bureaucracy”should not be seen as a negative phenomenon that must be removed.A hierarchical organizational structure is inherently more efficient,especially in the context of specialized multitasking governance.