专业性再造:综合行政执法改革的协调失灵与张力调和  

Professionalism Reengineering:Coordination Failure and Contradiction Resolution of Comprehensive Administrative Law Enforcement Reform

作　　者：冉鹏程 魏姝[1] 吴少微[1] Pengcheng Ran;Shu Wei;Shaowei Wu

机构地区：[1]南京大学政府管理学院

出　　处：《公共行政评论》2025年第2期123-143,199,共22页Journal of Public Administration

基　　金：国家自然科学基金面上项目“我国公共数据要素协同供给的断点问题及其情境化治理研究”(72474097);国家社会科学基金重大项目“社会科学影响公共政策的历史、机制与中国路径研究”(21&ZD174)。

摘　　要：行政机构改革在专业性与整体性之间的“钟摆”,是科层制困境的集中体现。对此,现有研究在整体性政府理念下,侧重于在科层压力、数字技术等外源性因素作用下的矛盾协调机制,进而忽视了组织内部专业性要素的价值。基于专业性视角,论文致力于解释综合行政执法改革中,由专业性与整体性矛盾引致的组织协调失灵问题及其调适路径。案例研究发现,综合行政执法改革在组织身份、职责内容、程序规则、个体技能等专业性维度,会产生组织整合后的身份模糊、属地管理后的职责分离、联合行动后的流程分散、任务综合后的技能缺乏等多种矛盾。对此,政府不断调试改革逻辑重心,创新出包含组织独立性建构、职责集中性设置、流程标准化再造、个体全科式培训等内容的专业性再造模式,并通过合法性认同与效能激励的动力机制,实现了专业性与整体性的张力调和与功能融合。专业性再造作为将跨部门专业性要素进行“化学”融合与有机重塑的创新尝试,适用于乡镇街道一级对不同领域专业性具有整体性需求的基层治理情境,不仅对科层制的专业性进行了理论拓展,还为深化行政体制改革、推动高质量发展提供了实践启示。The“pendulum”between professionalism and holism in administrative reform is the concentrated embodiment of bureaucracy dilemma.In this regard,under the guidance of the holistic government concept,the existing research focuses on the conflict coordination mechanism under the influence of external factors such as bureaucratic pressure and digital technology,then ignores the value of professional elements within the organization.Based on perspective of professionalism,this paper is committed to explaining the organizational coordination failure caused by the contradiction between professionalism and holism and its adaptation path in the comprehensive administrative law enforcement reform.The case study found that in the professional dimensions of organizational identity,responsibility content,procedural rules,and individual skills,the comprehensive administrative law enforcement reform would produce various contradictions,such as fuzzy identity after organizational integration,separate responsibilities after territorial management,decentralized process after joint action,and lack of skills after task synthesis.In this regard,the government has constantly adjusted the logical focus of reform,and innovated a professional reengineering model including the independent construction of organization,the centralized setting of responsibilities,the standardized process reengineering,and the general training in individual skills.These ways achieved the tension resolution and functional integration of professionalism and integrity through the dynamic mechanism of legitimacy identification and efficiency incentive.As an innovative attempt to“chemically”integrate and organically reshape inter-departmental professional elements,professional reengineering is applicable to the grass-roots governance situation at the township and street level,which has an overall demand for professionalism in different fields.It not only theoretically expands the professionalism of the bureaucratic system,but also provides practical enlighte

关 键 词：专业性再造 整体性政府 合法性认同 效能激励 综合行政执法改革 

分 类 号：D63[政治法律—政治学]