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技术在组织权力关系中的运用，是政府数字化治理的核心机制。然而，既有研究多囿于“结构-功能”框架下的静态分析，未能充分揭示技术嵌入组织权力互动的动态过程。本研究以“权力动员”与“技术集成”为分类维度，将城市运行的数字化场景划分为“权威统合型”“分级部署型”“局部试验型”与“自治共建型”四种类型，并据此考察上下级政府在数字空间中的权力运作逻辑。研究发现，上下级政府呈现出“控权”与“让权”双重张力。高层级政府的“控权”集中于超域治理、风险治理与行为监督等关键环节，同时下放初步处置权，实现策略性“让权”,并在必要时通过灵活接管确保整体统筹。基层政府则依托属地信息优势在有限空间内实施“控权”,同时以系统建设层面的“让权”换取合法性背书。二者以场景应用为纽带，形成动态嵌套的弹性治理格局。本研究为理解城市政府数字化转型中的权力运行机制提供了新的理论透镜。
Abstract：The application of technology in organizational power relations constitutes a core mechanism of digital governance. Existing scholarship tends to analyze this relationship through static structural-functional frameworks. These approaches leave underexplored the dynamic processes through which technology becomes embedded in vertical intergovernmental power interactions. Drawing on fieldwork conducted in Chengdu in 2024 and 2025, this study analyzes how municipal, district, and street-level governments interact through the city's three-level Urban Operations Platform. A total of 33 interviews were conducted with officials across all three tiers. Two analytical dimensions are introduced in this study. The first is power mobilization. The second is technology integration. These dimensions yield a four-type classification of digital governance scenarios. The four types are the authority-consolidating scenario, the tiered deployment scenario, the local experimentation scenario, and the autonomous co-construction scenario.The study finds that higher-level and lower-level governments exhibit a dual logic of centralization and delegation within digital space. Higher-level governments exercise centralization across three key areas. They retain control over cross-jurisdictional governance by aggregating data flows that transcend administrative boundaries. They monopolize risk governance through predictive algorithms and emergency dispatch systems that exceed grassroots capacity. They also strengthen behavioral oversight by generating traceable digital records of lower-level operations across governance tasks. At the same time, higher-level governments delegate selectively. In tiered deployment scenarios, grassroots officials are granted initial handling authority over routine cases. Dynamic authorization mechanisms allow them to claim and process tasks within designated parameters. Jurisdiction over non-standard cases follows a primary-contradiction attribution principle. Higher-level governments retain the right to intervene and resume control when the situation warrants it.Grassroots governments also exercise centralization. They build fine-grained scenarios by leveraging localized data assets to address needs that higher-level authorities cannot anticipate in advance. Grassroots governments likewise engage in delegation. The Baobiaotong platform illustrates this logic well. Originally an innovation designed to reduce redundant reporting tasks, it gained institutional recognition only after developers aligned it with higher-level technical standards and ceded platform control to upper tiers. Grassroots governments thus trade platform autonomy for legitimacy recognition within the overarching governance architecture. These dynamics together produce a flexible and nested governance structure. Digital governance scenarios serve as the primary medium through which power boundaries are tested, negotiated, and adjusted across levels. This study offers a new analytical lens for understanding power operations in government digital transformation. It advances theoretical discussions on the technology-power relationship in public administration.
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(3)中国信息通信研究院、新华社中国经济信息社:《数字政府蓝皮报告——业务场景视图与先锋实践》,2023年7月19日,http://www.caict.ac.cn/kxyj/qwfb/ztbg/202307/t20230719_457577.htm?sessionid=,2026年4月9日访问。
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(5)编码规则:访谈对象所在单位首字母+受访者序号+访谈年月日。
基本信息:
中图分类号:D63
引用信息:
[1]赵紫涵,何里程.“控权”与“让权”:数字化治理场景中的政府纵向权力互动[J].公共管理评论,2026,8(02):43-64.
基金信息:
国家社会科学基金一般项目“‘齐抓共管’情境下多部门‘政策合成谬误’的生成逻辑与改进研究”(项目批准号:24BGL233)的资助
2026-05-26
2026-05-26
2026-05-26