治理结构的拓扑化:数字与科层互构中的地方治理实践——基于长三角三地数字化实践案例研究  

Governance Structure Topology:Local Governance Practice in the Inte-Construction between Digitization and Bureaucracy——Case Analysis Based on Three Places in Yangtze River Delta

作　　者：马超峰 Ma Chaofeng(Faculty of Humanities&Social Sciences,Nanjing Forestry University,Nanjing,210037,China;School of Social and Behavioral Sciences,Nanjing University,Nanjing,210023,China)

机构地区：[1]南京林业大学人文社会科学学院,南京210037 [2]南京大学社会学院,南京210023

出　　处：《公共管理学报》2025年第2期24-35,168,169,共14页Journal of Public Management

基　　金：国家社会科学基金一般项目(22BSH045);中国博士后科学基金第75批面上资助(2024M751359);江苏省高校哲学社会科学课题一般项目(2020SJA0141)。

摘　　要：在地方政府数字化转型过程中,数字不仅是治理资源整合的黏合剂,也是重塑科层的关键要素。已有研究对上述过程的解读,往往是单向度理解数字嵌入治理过程,既缺少数字对科层结构的形塑讨论,也未寻迹科层组织内部数字轨迹。本文基于长三角三地数字化实践案例,分析数字与科层之间的互构机理,研究发现:数字对于科层治理结构具有形塑功能,使得M型结构延伸了科层宽度、H型结构提高了科层精度、U型结构克服了科层惰性,并将原有经典的科层金字塔演变为平行结构(M型)、漏斗结构(H型)与嵌套结构(U型),科层结构的可变性成为催动地方治理实践的关键。而科层结构的可变性在于数字转译的灵活性,即记号型数字与符号型数字之间的有效衔接,以及信息与决策闭环的构建。在可变性与转译性两个维度上,数字时代的科层治理结构向拓扑化转型。对此,地方治理实践应更加关注拓扑优化,即从制度优化、组织优化向组织生态优化转变。In the process of local government digital transformation,digital not only serves as the cohesive force for integrating governance resources,but also plays a pivotal role in reshaping bureaucracy.Existing studies often provide one-dimensional interpretations of digital embedding governance process,lacking discussions on how digital shapes bureaucratic structures and failing to track the digital trajectories within bureaucratic organizations.This study examines the mutual shaping mechanism between digital and bureaucracy by using examples of digital practices in three regions of the Yangtze River Delta.The research findings demonstrate that digital has a formative impact on bureaucratic governance structures:It expands the breadth of M-shaped structures,enhances the precision of H-shaped structures,and overcomes inertia in U-shaped structures.This transformation turns traditional bureaucratic pyramids into parallel(M-shaped),funnel(H-shaped),and nested(U-shaped)structures,rendering them more variability—a key driver behind local governance practices.The variability of these bureaucratic structures lies in the flexibility to translate digitally,specifically,through effective interconnections between sign-type and symbol-type digitals as well as constructing information and decision-making feedback loops.In terms of flexibility and translatability dimensions,bureaucratic governance structure is evolving towards topological configurations in the digital age.As a response to this shift,local governance practices should focus more on topological optimization—moving from institutional or organizational optimization to organizational ecological optimization.

关 键 词：科层制 地方治理 数字实践 治理结构 拓扑化 

分 类 号：D630[政治法律—政治学]