组织统合与基层政策执行波动——基于广西D镇便民服务中心改革的案例分析

Organizational Integration and Fluctuations in Grassroots Policy Implementation——A Case Study on Reform of the Convenience Service Center in D Town,Guangxi

基层执行波动缘何发生?基于广西D镇便民服务中心改革的案例,从资源整合、政策转化、要素重组三个维度构建“组织统合”分析框架,揭示基层政策执行波动的内在机理。研究发现,压力强化使得乡镇被动选择标准化执行方式予以应对,但是却出现运行成本过高、运行方式僵化、运行结构混乱等意外后果。为兼顾政策目标完成度,通过资源整合、政策转换及要素重组,乡镇提高组织统合能力以调适政策执行方式,推动政策从标准化执行转向实质性执行。统合能力是组织统合的充分条件,统合意愿是组织统合的必要条件,乡镇同时具备上述两个条件才有可能产生统合行为。而统合力变化呈现组织自主性,使乡镇能灵活改变与基层情景不相符的并选择恰适的政策执行方式,政策执行由此发生波动。同时,基层自主性扩张及受限的极端政策执行方式分别是,“只问结果不问过程”的“策略主义”与“只顾执行不问结果”的“形式主义”,因此上级政策调适须以规范、引导而非消灭和挤压组织自主性为核心手段。文章丰富了对政策执行波动问题的理论解释,并为提高基层政策执行力提供参照依据。

Why do fluctuations in grassroots policy implementation occur?Based on the case of the reform of the Convenience Service Center in D Town,Guangxi,this study constructs an"organizational integration"analytical framework from three dimensions:Resource integration,policy transformation,and element recombination,to reveal the intrinsic mechanisms of fluctuations in grassroots policy implementation.The study finds that pressure intensification leads towns to passively adopt standardized implementation methods.However,this results in unexpected consequences such as high operating costs,rigid operational modes,and chaotic operational structures.To balance the completion of policy objectives,towns improve their organizational integration capabilities through resource integration,policy transformation,and element recombination adjust policy implementation methods,promoting a shift from standardized to substantive implementation.Integration capability is a sufficient condition for organizational integration,and integration willingness is a necessary condition.Only when towns possess both conditions can integration behavior occur.Changes in integration capability reflect organizational autonomy,allowing towns to flexibly alter inappropriate grassroots scenarios and choose suitable policy implementation methods,causing fluctuations in policy implementation.Additionally,the ex-treme policy implementation methods driven by grassroots autonomy expansion and constraints are"strategism"emphasizing results over process,and"formalism"prioritizing execution over outcomes.Thus,upper-level policy adjustment should focus on standardizing and guiding rather than eliminating and suppressing organizational autonomy.This paper enriches the theoretical explanation of fluctuations in policy implementation and provides a reference for improving grassroots policy implementation capacity.