摘要
本文基于全国411个基层政府的数据,研究基层文件的数量如何影响专项治理绩效。研究发现:专项治理绩效与基层文件数量呈倒U形关系,即专项治理绩效随着基层文件数量的增加出现先增后减的变化。基于质性资料素材的分析表明,在达到"绩效拐点"前,基层政府能够在专项治理中兼顾制度环境和技术环境的要求,在满足上级绩效考核的同时也能实现组织预期的功能。然而,当越过"绩效拐点"后,受限于掌握的资源和工作能力,基层政府难以化解效益与合法性目标间的张力。为追求效益目标,忽视了过量文件导致的任务细分、制度交叠等问题,或为追求合法性目标,生产与组织实际绩效脱节的文件,并最终产生了组织绩效随文件数量增加而降低的现象。
In recent years,there has been a surge of studies focusing on red tape at the grassroots level(RTG)in China.Based on data from 411 grassroots governments,this article employs quantitative and qualitative methods to explore the relations between RTG and the effectiveness of campaign-style projects(CSPs).In this study,the quantity of files is regarded as a proxy for RTG.We explore the nature of RTG by examining the relations between the quantity of files generated in the conduct of CSPs and the performance of CSPs.CSPs,one type of grassroots governance,contain the following features:1.A clear time frame(such as the hundred-day special project);2.Performance evaluation indicators covering the entire CSP process.In other words,the higher-up agencies not only evaluate the results of the CSPs but they also develop a set of indicators to score each stage of the grassroots governments’accomplishment of the CSPs;3.Fiscal resources that are provided to sustain the CSPs;and 4.A matrix organization for project management,namely,a CSP-group.Each department appoints a certain number of staff to the CSP-group which is responsible for coordinating the resources and workloads to accomplish the CSPs.Based on these four features,we find that tensions between the institutional and technical environments exist in carrying out the CSPs.The institutional environment requires that the grassroots government incorporate elements that are legitimated externally rather than in terms of efficiency,and dependence on externally fixed institutions reduces turbulence and maintains stability.However,the technical environment requires that grassroots governments achieve better performance by consistently and substantially increasing efficiency.In this study,we propose two competing hypotheses which are enlightened by the nature of the institutional and technical environments.First,the positive relation,that is,the quantity of files is positively associated with the performance of CSPs because the files can ensure the efficiency of managerial communications.Second,the negative relation,that is,the quantity of files is positively associated with the performance of CSPs,because the files are created for the purpose of relieving the legitimacy pressures and are ultimately presented as formalities for the sake of formalities.To test these two hypotheses,we draw on CSP data from 411 grassroots governments in China.The results show that the quantity of files present an inverted u-shaped relationship with the performance of CSPs.Further qualitative analysis shows that on the left side of the inverted u-shaped curve,grassroots governments can achieve both institutional and efficiency goals.However,on the right side of the curve,due to the fragmented performance indicators,the multiple-line workloads,and blame avoidance,grassroots governments respond strategically to the higher-ups’control by producing red tape,expanding the gaps between the institutional goals and the efficiency goals,and ultimately inhibiting organizational performance.
作者
杨帆
章志涵
YANG Fan;ZHANG Zhihan(School of Political Science and Public Administration,East China University of Political Science and Law)
出处
《公共管理评论》
2020年第4期110-132,共23页
China Public Administration Review
关键词
繁文缛节
专项治理
文件
基层政府
red tape
campaign-style projects
paperwork
grassroots government
作者简介
杨帆,华东政法大学政治学与公共管理学院副教授,浙江省公共政策研究院研究员,研究方向为基层治理与应急管理,yangfanpspa@163.com;章志涵,华东政法大学政治学与公共管理学院硕士研究生,研究方向为基层治理与街头官僚。
