灾害应对中的央地政府间组织网络研究
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摘要
在灾害尤其是重大自然灾害应对过程中,中央与地方政府间的关系超越了常态科层结构,形成了具有更多动态性、柔性和适应性的组织网络,协同是这一组织网络的基本目标。文章以典型的自然灾害案例为基础,通过对央地政府间组织网络的可视化表达、关系分析和互动过程追踪,评价这一特殊组织网络的合作效果,寻求科层规则之外的协同促进策略。研究发现,灾害应对过程中央地政府间组织网络表现出一定程度的适应性特征,如组网时效性明显提高,中央与地方政府间的责任逐步明确,央地政府间价值观渐渐统一等,但高效协同效应仍未显现,表现为权力集中与分散的两难,价值认同与合作的不同步,权力高度集中于中央的组织网络裂解风险高,而权力责任下沉又导致了网络内大量组织之间联结断裂,地方政府间合作不足,角色确认、价值认同与适当的交往密度仍有待进一步培育。研究建议通过央地政府间组织网络结构的调整,使央地政府核心协调部门形成结构内聚关系,实现中央权威向地方的转移,通过省政府间的结构对等关系培育,提升地方政府间的协同性,同时发挥党的思想领导和政治领导作用,促进央地政府间思想与行动的统一生成。
In the process of responding to disasters especially major natural disasters, the relationship between central and local governments have transcended from bureaucratic form to a more dynamic, flexible and adaptable organizational network. Collaboration is the basic goal of this network. The study takes three natural disaster responses for example. The organization network between central and local government is analyzed using the tools of expression, relationship analysis and interactive process tracking. The efficiency of this organization network is evaluated and some synergy promotion strategies beyond the bureaucratic rules were provided. The study has shown such adaptive features as the higher efficiency of network forming, the gradual clearness of responsibilities between the central and local governments, and the gradual unification of values between the central and local governments. However, the efficient synergistic effect has not yet appeared, which is manifested as the dilemma of centralization and decentralization, the out-sync of value identification and cooperation, the high risk of collapse of high centralized organization network and the fracture of connection between a large number of organizations in decentralized organization network, and insufficient cooperation between local governments. Role recognition, value identification and appropriate communication density are still needing to be fostered. The study suggests forming a type of structural cohesion relationship between the key organizations of central and local government through adjustment the network structure of the central and local government organizations network, and promoting synergy among local governments by fostering structural equivalence relationship between local governments. At the same time, the empathy between the central and local governments could be formatted by the Political Leadership and Thought Leadership of the Communist Party of China.
In the process of responding to disasters especially major natural disasters, the relationship between central and local governments have transcended from bureaucratic form to a more dynamic, flexible and adaptable organizational network. Collaboration is the basic goal of this network. The study takes three natural disaster responses for example. The organization network between central and local government is analyzed using the tools of expression, relationship analysis and interactive process tracking. The efficiency of this organization network is evaluated and some synergy promotion strategies beyond the bureaucratic rules were provided. The study has shown such adaptive features as the higher efficiency of network forming, the gradual clearness of responsibilities between the central and local governments, and the gradual unification of values between the central and local governments. However, the efficient synergistic effect has not yet appeared, which is manifested as the dilemma of centralization and decentralization, the out-sync of value identification and cooperation, the high risk of collapse of high centralized organization network and the fracture of connection between a large number of organizations in decentralized organization network, and insufficient cooperation between local governments. Role recognition, value identification and appropriate communication density are still needing to be fostered. The study suggests forming a type of structural cohesion relationship between the key organizations of central and local government through adjustment the network structure of the central and local government organizations network, and promoting synergy among local governments by fostering structural equivalence relationship between local governments. At the same time, the empathy between the central and local governments could be formatted by the Political Leadership and Thought Leadership of the Communist Party of China.
引文
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[7] 齐守印.深化纵向财政体制改革理顺政府间财政关系[J].财政科学,2018(1):64-69.
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[9] 刘尚希,马洪范,刘微,等. 明晰支出责任:完善财政体制的一个切入点[J]. 经济研究参考,2012(40):3-11.
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[13] 郁建兴,黄飚.当代中国地方政府创新的新进展——兼论纵向政府间关系的重构[J].政治学研究,2017(5):88-103+127.
[14] 陈彪,张锦高,吕军,等.地方政府对地质灾害防治投资的经济学分析[J].中国软科学,2008(9):20-26.
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[17] 崇丹,李永奎,乐云.城市基础设施建设项目群组织网络关系治理研究——一种网络组织的视角[J].软科学,2012,26(2):13-19.
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[20] 闫章荟.灾害应对中组织网络的适应性发展策略研究[J].四川大学学报(哲学社会科学版),2013(1):121-131.
[21] 康伟.突发事件舆情传播的社会网络结构测度与分析——基于“11·16校车事故”的实证研究[J].中国软科学,2012(7):169-178.
[22] KAPUCU N. Interagency communication networks during emergencies: Boundary spanners in multi-agency Coordination[J]. American Review of Public Administration, 2006,36(2): 207-225.
[23] 张海波,尹铭磊.应急响应中的突生组织网络——“鲁甸地震”案例研究[J].公共管理学报,2016,13(2):84-96+156-157.
[24] 马奔,李文静.天津港“8·12”事故应急合作网络与协同应对[J].国家行政学院学报,2017(4):91-96+147.
[25] 刘亮,陈以增,韩传峰,等.国家应急管理工作组合作网络的社会网络分析[J].中国安全科学学报,2015,25(3):152-158.
[26] 马汀·奇达夫,蔡文彬.社会网络与组织[M].王凤彬, 朱超威,等,译. 北京:中国人民大学出版社, 2008.99-131.
[27] BARKER J R. Tightening the iron cage: Concretive control in self-management teams[J].Administrative Science Quarterly, 1993,38(3):408-437.
[28] PHILLIPS A. A theory of inter firm organization[J].The Quarterly Journal of Economics,1960, 74(4): 602-613.
[29] 让伟大抗洪精神发扬光大[N].经济日报,1998-09-29(1).
[30] 中纪委监察部通报要求严肃查处防汛抗洪斗争中的违法违纪行为[N].经济日报,1998-08-26(3).
[31] 认真贯彻落实党中央国务院决策有力有序有效应对雨雪冰冻灾害[N].人民日报,2008-02-02(2).
[32] 史培军,方伟华,董文杰,等. 中国应对巨灾的经验与教训——2008年初中国南方低温雨雪冰冻灾害应对及评论[R].IHDP2009 开放会议.
[33] 第一位是全力救人最大限度减少伤亡[N].人民日报,2010-04-15(5).
[34] 震灾就是命令八方驰援玉树[N].人民日报,2010-04-15(6).
[35] 人民生命财产安全压倒一切全力以赴科学有序抗震救灾[N].四川日报,2013-04-21(1).
(1)本文研究未用到角色对等的相关内容,因此,在此不做介绍。
[2] LIEBERTHAL K G,OKSENBERG M. Policy making in China:Leaders,structures,and process[M]. Princeton: Princeton University Press,1988: 22.
[3] 郑永年.集权为了改革,改革需要分权[J].领导文萃,2015(6):27-29.
[4] ZHAO H W. Political regime of contemporary China[M].Lanham:University Press of America,2002:55-111.
[5] 朱旭峰,吴冠生.中国特色的央地关系:演变与特点[J].治理研究,2018,34(2):50-57.
[6] 袁飞,陶然,徐志刚,等.财政集权过程中的转移支付和财政供养人口规模膨胀[J].经济研究,2008(5):70-80.
[7] 齐守印.深化纵向财政体制改革理顺政府间财政关系[J].财政科学,2018(1):64-69.
[8] 张光.十八大以来我国事权和财权划分政策动向:突破还是因循?[J].地方财政研究,2017(4):12-18.
[9] 刘尚希,马洪范,刘微,等. 明晰支出责任:完善财政体制的一个切入点[J]. 经济研究参考,2012(40):3-11.
[10] 朱光磊,张志红.“职责同构”批判[J].中国智库,2013(1):36-53.
[11] 贺鹏.打破职责同构:中国政府间纵向关系重塑的路径选择[J].内蒙古财经大学学报,2014,12(4):70-72.
[12] 张千帆.治理中国——走向央地关系法治化观点摘编[C]//共识(2012春刊07).北京:中央民族大学中国少数民族研究中心,2012:3.
[13] 郁建兴,黄飚.当代中国地方政府创新的新进展——兼论纵向政府间关系的重构[J].政治学研究,2017(5):88-103+127.
[14] 陈彪,张锦高,吕军,等.地方政府对地质灾害防治投资的经济学分析[J].中国软科学,2008(9):20-26.
[15] 滕宏庆.我国中央与地方政府应急预算法制化研究[J].法学论坛,2011(3):142-148.
[16] 李维安,林润辉,范建红.网络治理研究前沿与述评[J].南开管理评论,2014,17(5):42-53.
[17] 崇丹,李永奎,乐云.城市基础设施建设项目群组织网络关系治理研究——一种网络组织的视角[J].软科学,2012,26(2):13-19.
[18] 马骏,唐方成,郭菊娥,等.复杂网络理论在组织网络研究中的应用[J].科学学研究,2005(2):173-178.
[19] MANDELL M P. Partnerships, networks, and Collaborations: Do the differences matter[R]. the National Conference of the American Society for Public Administration, Seattle, WA, 2004.
[20] 闫章荟.灾害应对中组织网络的适应性发展策略研究[J].四川大学学报(哲学社会科学版),2013(1):121-131.
[21] 康伟.突发事件舆情传播的社会网络结构测度与分析——基于“11·16校车事故”的实证研究[J].中国软科学,2012(7):169-178.
[22] KAPUCU N. Interagency communication networks during emergencies: Boundary spanners in multi-agency Coordination[J]. American Review of Public Administration, 2006,36(2): 207-225.
[23] 张海波,尹铭磊.应急响应中的突生组织网络——“鲁甸地震”案例研究[J].公共管理学报,2016,13(2):84-96+156-157.
[24] 马奔,李文静.天津港“8·12”事故应急合作网络与协同应对[J].国家行政学院学报,2017(4):91-96+147.
[25] 刘亮,陈以增,韩传峰,等.国家应急管理工作组合作网络的社会网络分析[J].中国安全科学学报,2015,25(3):152-158.
[26] 马汀·奇达夫,蔡文彬.社会网络与组织[M].王凤彬, 朱超威,等,译. 北京:中国人民大学出版社, 2008.99-131.
[27] BARKER J R. Tightening the iron cage: Concretive control in self-management teams[J].Administrative Science Quarterly, 1993,38(3):408-437.
[28] PHILLIPS A. A theory of inter firm organization[J].The Quarterly Journal of Economics,1960, 74(4): 602-613.
[29] 让伟大抗洪精神发扬光大[N].经济日报,1998-09-29(1).
[30] 中纪委监察部通报要求严肃查处防汛抗洪斗争中的违法违纪行为[N].经济日报,1998-08-26(3).
[31] 认真贯彻落实党中央国务院决策有力有序有效应对雨雪冰冻灾害[N].人民日报,2008-02-02(2).
[32] 史培军,方伟华,董文杰,等. 中国应对巨灾的经验与教训——2008年初中国南方低温雨雪冰冻灾害应对及评论[R].IHDP2009 开放会议.
[33] 第一位是全力救人最大限度减少伤亡[N].人民日报,2010-04-15(5).
[34] 震灾就是命令八方驰援玉树[N].人民日报,2010-04-15(6).
[35] 人民生命财产安全压倒一切全力以赴科学有序抗震救灾[N].四川日报,2013-04-21(1).
(1)本文研究未用到角色对等的相关内容,因此,在此不做介绍。