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提升超大城市基层政府回应性有助于打造以个体生活福祉为核心的服务型政府。以12345市民热线为牵引的“接诉即办”机制在全国推广的过程中，多地实践却陷入“忙而无功”的结构性困境。理论界围绕“增强”与“减弱”回应强度形成两条竞争性研究路径，进而陷入进退两难的处境。本文引入诉求属性构建一个类型学分析框架，基于D街道接诉即办改革案例，考察了超大城市基层政府有效回应的内在运行过程。结果表明，基于“公共性-合理性”的诉求交互，基层政府分化出服务优化、实质解决、情感安抚和下沉议事四种行动策略。基于此，本文进一步理论推导出一种“转化式回应”的解释逻辑：作为与环境时刻交互的开放系统，理性的基层政府组织将属地规模化的民意诉求视为一个兼具正负外部性的多层次意义系统，通过将诉求办理与多重基础治理功能相联结，使其从治理负荷与任务转化为治理资源与支点等积极要素，进而修复基层治理生态。这一过程不仅从源头上降低了诉求产生的可能性，缓解了诉求压力，对冲了制度压力，更实现了与其他治理工作的协调而非挤压。从这个角度，遵循事本主义的“短平快”且缺乏转化式回应可能是超大城市基层治理“事倍功半”的深层次原因之一。本文建议从上级分流和基层转化两个方面实现政府均衡回应。
Abstract：The governance of megacities is an important component of China's national governance. Improving the responsiveness of grassroots governments in megacities is conducive to building a service-oriented government centered on individual well-being. The “Swift Response to Public Complaints ” mechanism, originating in Beijing, China's capital, is a significant reform innovation aimed at improving the responsiveness of grassroots governments—that is, efficiently responding to public demands—through the 12345 hotline. This reform has received high attention from the central government and has been promoted nationwide. However, with the nationwide rollout of the “Swift Response to Public Complaints ” mechanism, driven by the 12345 citizen hotline, many local practices have faced a structural dilemma of being “busy but ineffective”. The theoretical community has two competing research paths: “increasing” and “decreasing” the intensity of response, leading to a dilemma.This paper introduces a typological analytical framework based on the attributes of demands, and examines the internal process of effective response by grassroots governments in megacities using a case study of D Street in Beijing.The results show that, based on the interaction of demands based on “publicness-rationality” grassroots governments differentiate into four action strategies: service optimization, substantive resolution, emotional reassurance, and decentralization of consultation.This paper further derives a theoretical explanation of “transformative response”: as an open system constantly interacting with its environment, rational grassroots government organizations view the large-scale public demands within their jurisdiction as a multi-layered system with positive and negative externalities. By linking the handling of these demands with multiple basic governance functions, they transform them from governance burdens and tasks into positive elements such as governance resources and leverage points, thereby restoring the grassroots governance ecosystem. This process ultimately reduces the likelihood of demands arising at their source, alleviates pressure from demands and offsets institutional pressure, and achieves coordination rather than suppression with other governance efforts. This situation is more pronounced in the context of megacities. In this respect, a short-sighted, pragmatic response lacking transformative response may be a deep-seated reason for the “inefficient results” of grassroots governance in megacities.Therefore, this paper suggests achieving a balanced response from two aspects: diversion from higher levels and transformation at the grassroots level. This paper's theoretical contributions include incorporating the attributes of demands into research on grassroots government responsiveness and proposing the theoretical concept of “transformational response”, thus enriching current theoretical work. Furthermore, this paper offers a practical action path for shifting government responsiveness from a short-term perspective to a long-term one.
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(1)数据来源:内部文件。
(2)数据来源:《2024年北京12345市民服务热线年度数据分析报告》,具体参见https://www.beijing.gov.cn/hudong/jpzt/2024ndsjbg/index.html。
(3)本文的编码原则为“层级+日期”,其中街道编码为JD,社区编码为SQ。
基本信息:
中图分类号:D630
引用信息:
[1]孟凡坤.超越事本主义的“转化”:超大城市基层政府有效回应诉求的行动策略及其解释[J].公共管理评论,2026,8(02):65-87.
基金信息:
国家社会科学基金重大项目“超大城市治理的理论和路径研究”(项目批准号:22&ZD172)的资助
2026-06-02
2026-06-02
2026-06-02