“平急转换”:理解基层韧性治理的新视角

Emergency Transition:A New Perspective on Understanding Grassroots Resilient Governance

随着社会流动性增强,基层治理面临易变性、不确定性、复杂性和模糊性的挑战,提升公共部门应对风险的组织韧性,是推进基层治理现代化的应有之义。通过区分基层事务的常态与急迫议题,从政策反馈视角构建“平急转换”分析框架,根据公共权力的介入程度,剖析基层韧性治理的两种模式,即规则引领的协同治理模式及权威引领的整合治理模式,并阐述两者的适用场景。基于北京市S区物业管理改革的案例研究发现:在急迫场景下,公共部门深度介入物业事务,提升了问题处置能力;随着问题趋于缓和,公共部门调整注意力分配,减少直接介入,从应急物业转向常态物业。在有限的资源条件下,韧性治理意味着决策者需要区分公共事务的轻重缓急,根据政策实施的反馈信息,把握好调整时机,在整合治理与协同治理模式之间进行灵活转换。

With the increase of social mobility,grassroots governance faces challenges of volatility,uncertainty,complexity and ambiguity.It is necessary to promote the modernization of grassroots governance to improve the organizational resilience of public sectors to deal with risks.This study introduces the“time variable”and proposes an analytical framework of“emergency transition”for grassroots resilient governance from the perspective of policy feedback.Public policy is not only the result of the political process,but also affects the political participation and preferences of target groups,thereby reshaping the political environment.According to the significance and urgency of the problem,the authors of this study distinguish routine issues and urgent issues,and analyze two organizational modes of grassroots resilient governance,namely the rule-led collaborative governance and the authority-led integrative governance.The risk of routine issues is low and the time pressure for problem resolution is small.Under the guidance of rules,various actors cooperate through negotiation based on trust and commitment to reach consensus.Faced with urgent issues,collective action relies on authoritative cross-boundary mobilization to complete tasks within the specified time.The two governance modes have different application scenarios,and decision-makers need to flexibly promote“emergency transition”according to the nature of tasks and policy feedback effects.Based on the case study of property management reform in District's of Beijing municipality,it is found that in urgent scenarios,the public sector deeply intervenes in property affairs,establishes task force and property management committees,which improves the ability to handle intractable problems.As the problem tends to ease,the public sector adjusts its attention allocation,reduces direct intervention,and flexibly resolves disputes by setting up deliberative platform to promote the transition from emergent scenario property management to regular property services.Under the condition of limited resource,resilient governance means that policymakers need to distinguish the urgency of public affairs,collect feedback information on policy implementation,grasp the adjustment opportunity,and flexibly converse between integrative governance and collaborative governance.“Emergency transition”is an important means for public sector to respond to environmental disturbances,resolve urgent problems,and improve organizational resilience.Its effective operation relies on the joint support of attention distribution mechanism,discourse construction mechanism,and feedback learning mechanism.The basic conclusion of this study is that there is no single optimal model for public affairs governance.Decision makers need to assess the change of the problem based on the feedback effect of policy intervention,and steadily promote dynamic conversion of governance to avoid the risks brought by“sudden”or“hysteretic”transition.“Emergency transition”has distinct pragmatic characteristics,and decision makers adopt flexible strategies,which is conductive to achieving the unity of order and vitality,thereby enhancing the agility,flexibility and adaptability of hierarchical system.