提级治理:跨层级协作何以解决城市历史遗留问题  

Upgraded Governance: How Authority-Driven Cross-Level Collaboration Address Urban historical legacy

作　　者：何艳玲 蒋良竹 He Yanling;Jiang Liangzhu

机构地区：[1]中国人民大学 [2]北京大学中国政府治理研究中心 [3]教育部 [4]中国人民大学公共管理学院,北京100872

出　　处：《学海》2025年第2期15-28,213,共15页Academia Bimestris

基　　金：国家社会科学基金重大项目“中国改革开放创造的治理经验及政府理论提升”(项目号:19ZDA123)的阶段性成果。

摘　　要：科层制因层级清晰、权责分明的组织设计,可以有效应对治理过程中的常规问题。当问题的复杂性、影响范围及解决难度超出特定行政层级的权责范畴时,提级治理便成为一种应对策略。基于城市历史遗留问题的治理实践,解析提级治理的动因、主体、问题类型以及问题化解的具体过程可以发现,提级治理是依托上级政府的权威资源化解超出特定治理层级权责范畴或囿于政策、资金等而无法独立解决的问题。提级治理在历史遗留问题化解过程中依托权威塑造机制和纵向协调机制实现跨层级协作,本质上也是对纵向政府间权责关系的一种调适。与此同时,提级治理存在适用边界,是在复杂治理情境中对科层治理的补充。The hierarchical system, by virtue of its organizational design with clear hierarchical levels and clear delineation of authority and responsibility, can effectively deal with routine problems. When the complexity, scope of influence and difficulty of solving the problem exceed the scope of authority and responsibility of a particular administrative level, upgraded governance becomes a coping strategy. Based on the practice of urban historical problems governance, we can analyze the types, motives, subjects and the specific process of solving complex problems, it can be observed that upgraded governance entails intervention by higher levels of government to address complex problems that exceed their own scope of authority and responsibility or cannot be solved independently due to policy and funding constraints. In addressing these complex problems, upgraded governance relies on the authority shaping mechanism and vertical coordination mechanism to facilitate collaboration across multiple levels, which can be summarized as “authority-driven cross-level collaboration”. Upgraded governance represents a model of collaboration between upper and lower levels of government with Chinese characteristics and essentially reflects an adaptation of power and responsibility relationships among vertically structured governments. At the same time, the existence of the boundaries of application of upgraded governance as a complement to sectional governance in complex governance situations provides a new perspective for understanding the logic of local governance in China.

关 键 词：提级治理 科层组织 复杂问题 政府间关系 

分 类 号：D630[政治法律—政治学]