体制化“空转”： 发展悖境中社区工作站运行的组织行为分析——以S市X社区为例

社区工作站作为承接政府社区公共服务职能的新型社会组织,似乎并未真正摒弃行政化积弊及普遍性怠政现象,凸显出事实与价值背离的发展悖境态势。在当前新工作情境下,社区工作站无论是窗口、街头还是社区,其实都呈现出无工作负荷的“空转”状态,并彰显惯习性运作的体制化印记,而体制化“空转”的致因逻辑又在于情境暗示效应下的规章制度软性约束、街道办“示范效应”及社区工作“应付法则”。对此,有必要由情境反思予以解悖,从“干净的石板（clean slate）”出发,在政策原点上破解社区工作站的运行困境,尝试社区工作站的机构撤并及职能删减,以摒除社区公共服务工作中本不该有的体制化“空转”状态,力促基层组织体制改革去行政化的不二取向。

Institutional Malfunction: An Organization Behavior Analysis of Community Workstations in the Development Dilemma—An Example of Workstation in Community X,City S

As a new social organization to rectify community committees deviating its autonomous character in the reform exploration of community management structure, community workstation is a public governance platform arranged by sub-district offices to deal with local affairs. Since the working attitudes and styles, law enforcement capacities and personal preferences influence governmental prestige and image, the research of its behavior and psychological mechanism process is the key to clarify the trends of community governance. Although aiming at the functions of providing community public service so that community committees can focus on community inhabitant self-governance affairs, community workstation couldn't keep away from bureaucratization because its self-cognition severely deviate from its original intention and fall into the state of being in a double squeeze and development dilemma. Under the analytical framework of ″environment-behavior,″ the field research of Community X in City S which leads the community management innovation shows the fact that the community workstation is slack to work, arbitrary and unpredictable, rather than meets the demands of organizational functions and being weak embeddedness so as to promote the development of community self-governance. The malfunction of community workstation reveals habitual behavior in certain organization field while disregarding the policies and being dependent on the bureaucracy structure and original authority arrangement and being negative coping with the new administrative environment requirements. Since the intrinsic nature of malfunction behavior as well as the bureaucratic considerations prefigure the logic that administrative environment has some places for organizational sluggishness, the paper suggests that the reasons of community workstation malfunction should be situational hints which include institutional hints, organizational hints and conventional hints. These situational hints show why and how the malfunctions happen and how it is possible to happen, covering the regulatory soft constraint, the model effect of sub-district offices and muddle through the approach of community affairs. The paper argues it is quite necessary to start with the clean slate to consolidate and relocate the community workstations so as to solve the malfunction problems of community workstations and promote the de-administrationreform for primary organizations.