基层政府的组织结构何以“另起炉灶”?——以T镇政府的“工作线”为例  

The Phenomenon of“Starting from Scratch”for Primary-level Government Organizational Structures:A Case Study of T Town’s“Work Lines”

作　　者：李智超 于翔 LI Zhi-chao;YU Xiang(School of International and Public Affairs,Shanghai Jiao Tong University,Shanghai 200230,China;School of Emergency Management,Shanghai Jiao Tong University,Shanghai 200230,China)

机构地区：[1]上海交通大学国际与公共事务学院,上海200230 [2]上海交通大学应急管理学院,上海200230

出　　处：《广西师范大学学报(哲学社会科学版)》2025年第3期39-50,共12页Journal of Guangxi Normal University(Philosophy and Social Sciences Edition)

基　　金：国家自然科学基金面上项目“级联灾害的城市应急合作治理网络研究:结构、绩效与优化”(71974057);上海市教育委员会和上海市教育发展基金会“曙光计划”项目(21SG49)。

摘　　要：基层政府的内部组织结构为何在上级的制度规定之外“另起炉灶”?T镇政府的运作案例呈现了这样一种组织现象:在保留正式制度规定的组织结构以外,另外建立一套灵活调整的“工作线”结构,发挥着本应由正式组织结构承担的组织功能。研究T镇的组织现象发现:从“中心工作”到“多中心工作”的治理转型,与压力型体制再造带来的自主性收缩,使得行为规范导向的制度同构与绩效结果导向的技术同构彼此冲突,基层政府组织结构出现脱耦倾向;在强竞争、难协调、弱资源的三重困境下,乡镇政府通过“另起炉灶”的方式重塑注意力结构;“工作线”通过责任配置的去专业化、设置方式的去制度化与组织结构的灵活常设,实现以多线动员替代整体动员,完成注意力同步与多任务并行。以T镇“工作线”为代表的组织结构脱耦现象,其组织后果是基层组织的被动忙碌,反映了上级行政控制的强化,而非基层自主性和创新能力的提高。This paper investigates why primary-level governments establish organizational structures outside of superior institutional regulations.The operational case of T Town reveals that while maintaining the formal organizational structure stipulated by higher authorities,T Town creates a flexible“work line”system to perform functions originally assigned to the formal structure.Key findings include:The shift from“centralized work”to“multi-centered work”in governance,coupled with the autonomy-constraining effects of a pressure-based system,leads to conflicts between normative institutional isomorphism and performance-oriented technical isomorphism,resulting in organizational decoupling at the primary level;Faced with triple constraints of intense competition,coordination difficulties,and resource scarcity,township governments reshape attention structures through“starting from scratch”;The“work line”system replaces whole-scale mobilization with multi-line coordination and achieves multi-task parallelism and attention synchronization by de-specializing responsibility allocation,de-institutionalizing setup methods,and maintaining a flexible yet permanent organizational structure.The organizational decoupling phenomenon represented by T Town’s“work lines”leads to passive wear-out at the primary level,reflecting enhanced administrative control from higher levels rather than improved local autonomy or innovation capacity.

关 键 词：基层治理 乡镇政府 组织结构脱耦 工作线 

分 类 号：D630[政治法律—政治学]