“领导兜底”:乡镇担责行为研究——基于广西昭平县C镇的考察

"Leaders Taking the Blame":A Study on the Taking-Charge Behaviors of Townships Based on the Investigation of Township C in Zhaoping,Guangxi

基于广西昭平县C镇的案例分析,构建“结构困境—自主空间—责任行动”分析框架,探究乡镇积极承担公共责任的策略与逻辑。研究发现:一方面,置身于权责不对称的科层结构压力下,上级政府和公众的责任预期强化了乡镇权责困境;另一方面,科层治理挤压了乡镇的自主空间,致使乡村责任共同体逐渐瓦解,部分责任从村级组织上移至乡镇,形成卸责困境。乡镇通过事务分担机制、情感运作机制及角色激励机制将事—责汇集于领导层,形成“领导兜底”的担责机制,并以此重构责任行动。基于“结构—自主”维度,归纳出乡镇避责(下级担责)、乡镇担责(“领导兜底”)、无人担责、惯例担责等4种责任行动类型。“领导兜底”揭示乡镇运行绝非以避责为首要特征,组织结构与自主空间的交互作用催生出主动担责行为。

Based on the case study of Township C in Zhaoping,Guangxi,this paper constructs the analytical framework of "structural dilemma-autonomous space-responsible action" to explore the strategy and logic of townships' active assumption of public responsibility.It is found that,on the one hand,under the pressure of the asymmetrical hierarchical structure,the responsibility expectation of the higher level government and the public aggravates the dilemma of power and responsibility of the townships;on the other hand,the hierarchical governance squeezes the autonomous space of the townships,resulting in the gradual disintegration of the rural community of responsibility and the upward transfer of part of the responsibilities from the village organizations to the townships,thus creating the dilemma of responsibility shifting.Through the mechanism of sharing affairs,emotional operation and role incentives,the townships have brought together the affairs and responsibilities in the leadership,forming the mechanism of "leaders taking the blame",and restructuring the taking-charge action.Based on the dimension of "structure-autonomy",four types of taking-charge actions are summarized:townships avoiding responsibility(subordinates taking responsibility),townships taking responsibility( "leaders taking the blame"),no one taking responsibility,and taking responsibility by convention. "Leaders taking the blame" reveals that the operation of townships is by no means primarily characterized by avoidance of responsibility,and that the interaction between organizational structure and autonomous space has given rise to proactive taking-charge behaviors.