乡镇政府负担生成的三重机制——一个组织学的解释框架  

Three Mechanisms of Township Government Burden:An Organizational Interpretation Framework

作　　者：栗伊萱 刘文璋 Li Yixuan;Liu Wenzhang

机构地区：[1]中国人民大学公共管理学院

出　　处：《公共管理与政策评论》2022年第6期111-125,共15页Public Administration and Policy Review

基　　金：国家社会科学基金重点项目“推进乡镇政府减负增效的体制机制研究”(20AZZ008)阶段性成果;中国人民大学“中央高校建设世界一流大学(学科)和特色发展引导专项资金”支持,项目批准号2022065。

摘　　要：厘清乡镇政府负担的生成机制对减轻基层负担,提升组织效能至关重要。基于全国六个乡镇的田野调查,本文从乡镇政府所处的组织环境切入,采用扎根理论方法,识别了乡镇政府负担的生成机制。从组织学视角研究发现:乡镇政府负担的产生是乡镇政府服从科层体制、回应社会问题和内部激励失灵三重机制共同作用的结果。乡镇政府所处的制度环境和社会环境,在运行中生成了自上而下的制度性负担和自下而上的回应性负担两种外部负担。作为对外部负担的一种应对,乡镇政府运作中的激励失灵又生成了内部负担。外部负担是乡镇政府所处的制度环境和社会环境在运行中出现“异化”的结果,内部负担则是乡镇政府应对外部负担的一种适应机制,前者为后者的产生和持续提供了“合法性”空间。本文的研究表明乡镇政府负担不是偶然产生的,而是深刻根植于乡镇组织系统的运作之中,即负担是被有意“建构”的。这一发现有助于解释“基层持续减负却越减越负”的“减负悖论”,也有助于探寻有效破解基层减负症结的治理之道。It is vital for township governments to identify the formation mechanism of their burden to ease the burdens on those working at the primary level to improve their organizational efficiency.Based on a field survey of six townships across China,and using the Grounded Theory approach,the thesis identifies formation mechanisms of the burden on township governments from the organizational environment in which they operate.From an organizational perspective,we find that the burden on township governments is the result of a triple mechanism,which are subordination to the hierarchy,response to social problems and internal incentive failures.The institutional and social environment in which the township government operates generates two types of external burdens:top-down institutional burdens and bottom-up responsive burdens.As a response to the external burden,the incentive failure in the operation of the township government generates an internal burden.While external burdens are the result of the“alienation”of the institutional and social environment in which the township government operates,internal burdens are an adaptation mechanism for the township government to cope with external burdens,with the former providing the“legitimacy”for the origin and continuation of the latter.The empirical results shows that the burdens on township governments do not occur by accident but are firmly rooted in the way the political-administrative system works.In other words,the burden is intentionally“constructed”,which helps to explain the“paradox of burden easing”in which the governments continue easing the burdens on those working at the primary level,but they feel the burden is getting heavier,and also helps to explore effective ways of governance to continue easing burdens at the primary level.

关 键 词：乡镇政府 基层减负 组织学 扎根理论 

分 类 号：D630[政治法律—政治学]