统分式齐抓共管:生成逻辑、运行机制和制度改进

Unified-Decentralized Joint Management:Generation Logics,Operational Mechanisms and Institutional Improvements

不同于“一件事情由一个部门负责”的一般原则,我国在安全生产、生态环保、消防安全等领域实行统分式齐抓共管,既设置主管部门,又要求其他部门“管行业必须管某事”,形成全政府治理格局。统分式齐抓共管包括目标改进和能力扩张两种生成逻辑,目的都是通过对分管部门进行功能拓展以实现组织适应。党和国家建立了势能强大的共识塑造机制、统筹有力的组织协调机制和灵敏严厉的考核问责机制,以保障统分式齐抓共管的有效运行。但既有机制仍存在成本较高、问责过严、职责分工方案适应性差以及分管部门履职积极性不高、权责不匹配或专业性不足等问题,应当严格限制其适用范围,重新匹配分管部门的权力、责任和能力,并回归基于过错责任的问责制。

Different from the general principle of assigning a single department to manage a specific task,China has adopted unified-decentralized joint management in the fields of safety production,ecological environmental protection,and fire safety.In addition to establishing competent department,other departments are required to manage certain matters within their respective industries forming a whole-of-government governance pattern.Unified-decentralized joint management includes two generation logics:goal improverment and capacity expansion.Both aim to achieve organizational adaptation by expanding the functions of departments in charge.In order to ensure the effective operation of unified-decentralized joint management,the Party and country have established consensus shaping mechanisms with strong political potential energy,efficient organizational coordination mechanisms,and sensitive and strict assessment and accountability mechanisms.However,there are still some problems in the existing mechanisms such as high costs,overly strict accountability,poor adaptability of the division of responsibilities,low activeness,inequalities between the power and responsibility,lack of professionalism from departments in charge.It is necessary to restrict its application scope,redistribute powers,responsibilities and capabilities of departments in.charge,and revert to an accountability system based on fault liability.