“小马”何以拉“大车”——任务驱动下基层政府的行为策略及其调适机制

• 作者： 胡春艳 ^1,2 张莲明 ¹
• 作者单位：
  1.  中南大学公共管理学院

  2.  中南大学地方治理研究院
• 通讯作者： 张莲明 
• 发布时间：2024-05-10

摘要: 基层治理的体制性问题集中体现为“小马拉大车”的难题，但“小马”如何拉动“大车”的内在机理还有待深入探讨。本文以任务驱动视角为切入口，构建任务“目标—属性—策略—效果”的分析框架，选取J 县四个典型任务案例，研究发现基层政府在不同任务情境下表现为差异性的行为策略，并运用了资源动员、组织创新、人格化问责、情感治理四种调适机制以实现任务目标。研究解释了小马（基层政府）何以拉动大车（超负荷任务）的行为策略表现以及内在运作机理，二者共同组成“策略为表，机制为里”的非正式制度逻辑。这有助于反思当前如何从正式制度层面优化政府间的权力关系和控制约束机制，未来应推动“扩权赋能”和“绩效问责”的制度化改革，助力基层政府走出当前的结构性困境。

Abstract: The institutional problem of grassroots governance is focused on the problem of “a pony pulling a big cart”， which also reflected the deep contradictions between the authoritarian regime and effective governance. But the inherent mechanism of how a pony pulls the big cart still needs to be further discussed. From the perspective of multiple tasks，the paper constructed a goal-nature-strategy-result framework to analyze research questions. We took J County as a case and selected four typical tasks for analysis. The study found that the grassroots government would adopt different behavior strategies in the context of multiple tasks. Four adjustment mechanisms including resource mobilization，organizational innovation，personal accountability and emotional governance were used to achieve the task objectives. The study explained the behavior strategies and inherent running mechanisms of how a pony（the grassroots government）pulled the big cart （overloaded tasks），which formed the informal institutional logic of “strategy as the surface and mechanism as the  inside”. The study provided micro experience for understanding how to optimize the inter-governmental power relations and control and constraints mechanisms among governments at the formal system level under the current unified system. In the future，it is still necessary to help grassroots governments get out of the current structural dilemma by promoting power expansion and empowerment，as well as optimizing performance accountability.

• 分类： 公共管理学 >> 行政管理 政治学 >> 政治学理论
• 说明： “小切口·大问题”专栏
• 稿件状态： 已在期刊出版
期刊名称： 《中国行政管理》 2023年 第4期 “小切口·大问题” 专栏
• 引用： PSSXiv:202405.00181 (或此版本 PSSXiv:202405.00181V1)
  DOI:10.12451/202405.00181
  CSTR:32012.36.PSSXiv.202405.00181
• 推荐引用方式： 胡春艳,张莲明.“小马”何以拉“大车”——任务驱动下基层政府的行为策略及其调适机制.中国行政管理,2023(4).[PSSXiv:202405.00181V1] (点此复制)