从审管分离到审管协同的逻辑与优化路径——对审管互动关系的分析

中国的审管关系正在从分散审批走向集中审批,从审批监管一体化走向审批监管相对分离,从以前置审批为中心走向以事中事后监管为重心。在审管关系转型时期,观察Y市设置行政审批服务局的改革实践,发现审管分离并不会自然地向审管协同的良性互动转变。本文以审管互动关系为研究对象,基于组织理论,按照目的、干预、组织环境对审管分离之后推进审管互动进行演进分析和逻辑解释。在等级科层制的现代政府中,审管分离之后的利益与目的走向分化,出现部门理性和整体理性的背离,而权力(权威)协调和信息联通是实现政府组织一致化理性的工具,审管互动的具体组织形态及其运作方式与所在环境密切关联。为推进审管协同,需要在动力、机制、信息、文化等方面优化路径。

The Logic and Optimization Path from Separation to Collaboration:Analysis of Interactive Relationship Between Administrative Examination and Approval and Supervision

The relationship between administrative examination and approval and supervision is showing three new trends:from decentralization to centralization,from integration to separation,and from the emphasis of examination and approval in advance to supervision in progress and afterwards.During this transformation period,the separated functions of administration examination and approval and supervision would not evolve into collaboration revealed in the case study of reforming the agency of administrative examination and approval in Y city.This paper applies organizational theories to study the relationship between administrative examination and approval and supervision.Through incorporating the goals,intervention,and organizational environment,this paper does an evolutionary analysis and a logical explanation on promoting a positive interaction between administrative examination and approval and supervision.In a modern hierarchical bureaucracy,the conflicted interests and goals caused by the separation between administrative examination and approval and supervision lead to the opposite rationalities between individual agencies and the government as a whole.Power(authority)collaboration and shared information are the tools to address the conflicted interests and achieve a coherent rationality among government agencies.For this purpose,there is a need to optimize paths for motivations,mechanisms,information,and culture.