限权与赋能:现代科层制组织规范功能再审视——浙江绍兴信访矛盾化解标准化建设案例分析  

Power Limitation and Empowerment: Re-recognition of Modern Bureaucracy’ Normative Function——A Case Study on the Standardization Construction of Conflict Resolution of Letters and Visits in Shaoxing of Zhejiang Province

作　　者：刘开君 Liu Kaijun(The Party School of the CPC Shaoxing Municipal Committee,Shaoxing 312000)

机构地区：[1]中共绍兴市委党校枫桥经验研究中心,绍兴312000

出　　处：《浙江社会科学》2022年第3期41-49,157,共10页Zhejiang Social Sciences

基　　金：国家信访局2021年度信访理论研究课题“基于新时代‘枫桥经验’的信访矛盾化解标准化建设研究”(编号:2021AG0704)。

摘　　要：现代科层制组织原本就具有规范功能。作为一项具有中国特色的政治和法律制度安排,信访制度在治理实践中逐渐衍生出矛盾化解功能。近年来,"重复访""集体访""越级访""缠闹访"等信访乱象周期性膨胀,直接原因是信访治理不规范,根本原因则是行政权力运行失范。为此,浙江绍兴在增强市域顶层设计的基础上,分别在上虞区和诸暨市开展信访矛盾化解标准化建设省级和市级试点,着力发挥"枫桥经验"发源地的制度基础和创新资源优势,充分运用"小事不出村、大事不出镇、矛盾不上交"以及抓早抓小抓苗头等理念,重新审视现代科层制组织的规范功能,从科层体系、信访接访、信访处置、信访答复、档案管理、制度建设等方面探索构建了一整套标准化流程和操作规范,以此向信访部门和信访干部赋能,同时限制行政权力失范行为。信访矛盾化解标准化建设有利于化解信访矛盾存量、减少增量,实现源头治理,对基层制度创新具有多重启示。Modern bureaucratic organization has a naturally normative function. As a political and legal system arrangement with Chinese characteristics, the petition system has gradually derived the function of conflict resolution in the practical changes. In recent years, the chaos of letters and visits such as "repeated visits", "collective visits", "leapfrog visits" and "tangled visits" has expanded periodically. The direct reason is that the governance of letters and visits is not standardized, and the fundamental reason is the inaction and incorrect action of administrative power. Since 2019, on the basis of strengthening the municipal top-level design, Shaoxing, Zhejiang Province has carried out provincial and municipal pilot projects for the standardization of conflict resolution in Shangyu district and Zhuji City, making great efforts to give full play to the institutional foundation and innovative resource advantages of the birthplace of "Fengqiao Experience",such as "Small things do not go out of the village, major events do not go out of the town, conflicts do not turn over","Early grasp small signs" and "Governance from the source", and so on. At the same time, the normative function of the modern bureaucratic organization is used. A set of standardized processes and operation specifications for resolving letters and visits conflicts have been explored and constructed, from the aspects of the institutional system, letters and visits reception, disposal, reply, file management and system construction, so as to empower related departments and cadres and limit the "arbitrary behavior" of administrative power. The standardized construction of resolving conflicts in letters and visits is conducive to resolving the stock of contradictions in letters and visits, reducing the increment, and realizing governance from the source. At the same time, it has multiple implications for grass-roots system innovation.

关 键 词：现代科层制组织 信访矛盾化解 标准化建设 “枫桥经验” 

分 类 号：D632.8[政治法律—政治学]