地方领导小组何以有效:“情境-结构”的双重契合——基于宜良县宅基地制度改革的观察

How Can Local Leading Groups Be Effective?A“Situation-Structure”Dual Fit:An Observation of the Rural Homestead System Reform in Yiliang County

在组织超规模设置的背景下,地方领导小组何以有效?本文采用个案研究方法,聚焦云南省昆明市宜良县农村宅基地制度改革试点工作领导小组的实践过程,从地方领导小组“部门协调机制”和“政策主体”的双重角色定位出发,展现了情境与结构之间以行动为中介的契合过程。研究发现:第一,当地方政府面对复杂情境时,地方领导小组为破除科层桎梏提供了可能,其特殊结构生成了组织适应情境的能力,实现了组织情境与规范结构之间的协同性契合。在此基础上,地方领导小组通过控制调适的行动策略为政策实施提供了全过程的方向牵引,保证了任务情境与目标结构的治理性契合。第二,增强领导小组办公室能力来削弱“注意力依赖”、建立更为有效的外部情境沟通渠道来保障组织结构的完全开放,以及在目标模糊性和高度自主权的基础上发挥控制调适的行动策略,是实现“情境-结构”的双重契合的关键。本文研究结论有助于理解地方领导小组情境、结构和行动三大要素之间的逻辑关系以及地方领导小组有效性的生成机制和微观基础,丰富中国特色领导小组研究的一般性理论,为地方性实践提供参考。

In the context of organizations with hyper-scale setup,how can local leading groups be effective?This paper adopts a case study method and focuses on the practice process of the rural homestead system reform pilot work leading group in Yiliang County,Kunming City,Yunnan Province.Starting from the dual roles of local leading groups as“department coordination mechanisms”and“policy subjects”,this paper demonstrates the fit process between the situation and structure mediated by action.Our findings are as follows.First,when local govermments face complex situations,local leading groups provide the possibility to break the bureaucratic constraints.Their unique structure generates the organizations'ability to adapt to the situation,achieving a synergistic fit between organizational situation and normative structure.On this basis,local leading groups provide full-process directional guidance for policy implementation through action strategies for controlling adaptation,ensuring governance fit between task situation and goal structure.Second,enhancing the abilities of the leading group office to weaken“attention dependence”,establishing more effective external situation communication channels to ensure the complete openness of the organizational structure,and adopting action strategies for controlling adaptation based on goal ambiguity and high autonomy are key to achieving a“situation-structure”dual fit.The conclusions of this paper help to understand the logical relationship between the three major elements of local leading groups--situation,structure,and action--as well as the generation and micro-foundation of the effectiveness of local leading groups.It enriches the general theory of leading groups with Chinese characteristics and provides references forlocal practices.