【作者】 任哓春；

【导师】 麻宝斌；

【作者基本信息】 吉林大学 ， 公共治理与公共政策， 2012， 博士

【摘要】 我国信访工作机构众多，党委、政府、人大、司法都设有信访工作机构，庞杂分散地“内嵌”到了整个政治系统之中。在现实的公共管理中，几乎所有的信访工作机构都负有信息接受和信息分流的权能，而信息处理的权能却在其他职能部门。信访信息流动在整个政治体系之中，对信访信息的管理不当很可能引发其他针对政治体系的政治压力。信访渠道从本质上说是一种信息渠道，然而在现实中无论从宏观还是微观上都表现出一定程度的不畅。从宏观上看，信访信息渠道呈现出“倒金字塔”型的信访景象、反复循环的信访怪圈和不断激化的信访过程；从微观上看，信访信息渠道出现入口处的不透明与无序、渠道内的信访存量增加、出口处的结果差异与决而不行。导致这些现象的原因是什么？本文按照由宏观到微观的逻辑思路，采用“体制——流程——技术”的分析框架，运用分类讨论的方法，分不同情境分析了导致信访信息渠道不畅的原因。畅通信访信息渠道不仅需要理顺体制与细化机制，还需要升级技术与强化管理，更需要转变观念与内化品质。更多还原

【Abstract】 Information is an important part of the public administration, the spiritual core ofthe political communication, and the fundamentals of the government behavior.Information communication is the nerves of government, and information managementis the behavior of government. For the letters-and-visits office which has the power ofinformation acceptation and shunt but information processing, it is particularlyimportant to research information unblocked. In the entire political systems, theimproper management of the letters-and-visits information may cause political pressureto political systems. From the information management perspective, this paper analyzesthe blocked performance and causes of the letters-and-visits channels, and finallyproposes the direction of the letters-and-visits information channels unblocked.The first chapter analyzes the requirements and performance of letters-and-visits asan information channel. As an information channel, letters-and-visits require unblockedin essence, and unblocked channel requires social information’s effectivecommunication and processing in the government system. Unblocked channel not onlyhelp the government to obtain the bureaucracy information and the countries to acquiresocial information, but also to the political participation of citizens. The distributionstate of issues and the motion state of behavior in letters-and-visits reflects the macrounblocked. However, the reality is the "inverted pyramid" scene, constantly repeatedcycles, intensified process. One issue in various stages of letters-and-visits reflects themicro unblocked, specifically, including the degree of the convenient and order at the entrance, the currency in the channel, and reliability and effectiveness at the exit.However, the reality is opaque and disorder at the entrance, stock in the channel,different results and no resolutions at the exit.The second chapter analyzes the situation and reasons of blocked channel that theletters-and-visits system leads to. It analyzes the reasons from organization system andprocessing system of the letters-and-visits. In the letters-and-visits organization system,political parties, the government, the National People’s Congress, Justice, the army,society, and other organizations don’t have suitably organizational settings and clearlyownership relations. It may impact the letters-and-visits information on input, collection,distribution, reaction, leading to the accumulation of cases and passing the buck, thusimpeding the rapid flow of information in various systems. These systems are in chargeof collecting social information from various fields and transferring the information tofunctional departments. Therefore, the relationship system of the letters-and-visits ofpolitical parties, the National People’s Congress, Justice and the government constitutesthe external system of letters-and-visits organization. Among all of them, therelationship between the letters-and-visits of the political parties and government canaffect the processing of letters-and-visits information, and the relationship between theletters-and-visits of the National People’s Congress and government have an effect oninformation input, and the relationship between the letters-and-visits of Justice andgovernment will influence the carrying capacity of letters-and-visits channels.In the letters-and-visits processing system, the priority of the territories of“localmanagement”system has rationalized the contradiction of upper levels and lower levels,but it may make the responsibility of the grassroots level of government expandinfinitely, affect the independence and authority of Judiciary, and can’t get rid of thedifficulties of the information vertical communication. The multilevel nature ofterritoriality can’t be separated from the Graded management system. If the gradedresponsibility system doesn’t have a perfect operation, it may lead to someletters-and-visits be passed down legally. While some letters-and-visits matter should be studied by superior department, it is transferred to the next level. Some letters-and-visitsmatter are handed in, which makes these should be processed by subordinatedepartment transferring to the Upper level.“Who is in charge, who is responsible for”system has a premise that is to administer centrally, but it may lead to mutual shuffleand low speed processing.“Who is in charge, who is responsible for”system has alogical premise that the related departments having no departmental interests are allstrictly in accordance with the law. May be due to the double identity, leader’s alterationand rank relationship of the main body of information processing, it leads to unfairprocess.“Law, timely, local solutions combine with the principle ease of education”,and it raises the means of dealing with letters-and-visits. But it’s just a wish, and inreality, it is affected by the social environment the organization exists in.The third chapter analyzes the situations and reasons of blocked channel that theletters-and-visits business progresses lead to. In this chapter, according to the sequenceof three letters-and-visits business process (acceptance, transaction, review), it analyzesthe reasons of letters-and-visits channel blocked. When the letters-and-visits departmentadopts approval procedure, the department possibly filters the information in the way ofuncertainty and delay absorb. The leaders may give subjective judgments on theinformation filtering. When the letters-and-visits department adopts transfer procedure,the department may be due to recognize the starting point institutions (unit) havingpower to deal with and letters-and-visits business wrongly, lead to information error.Because of the system and other factors may lead to the exchange of informationobstructing. And the department of having power to deal with may be due to findingexcuse or involving two and more departments don’t process information. At the sametime, in the context of assigned, the letters-and-visits department and the department ofhaving power to deal with require exchange of information result. When the functionaldepartment accepts the letters-and-visits business, there is information identification andexchange between the upper and lower departments.When the functional department deals with the information directly, there is unavoidable difference due to the repeated. When the functions of the department afterthe admissibility of the petition department directly handled, It needs the informationtransmission between the acceptation and the execution, the information coordinationbetween the letters-and-visits people and the authority, and the information feedback.When the department is ordered to handle by the superior administrative organ, therewill be“three skins”consist of the acceptation, the execution and the authority,increasing the difficulty of information management. When the letters-and-visits sectordeal with the information directly, there will be less difficulty in informationmanagement, but may bring other government problems. When the letters-and-visitssector handle, they also cannot get rid of the information management between theexecution and the authority.In review and re-review stage, letters-and-visits matters may not be achieved "threesteps reviews”because of "inadmissible". And when they are handled, it may make"three steps reviews”become apparent because of the consistency of the commissionagent. What’s more, information game may be played between the lower and higherlevel.The forth chapter analyzes the situations and reasons of blocked channel in theletters-and-visits application of information technology. From the perspective ofgovernment management, it analyzes information acceptation platform and informationprocessing platform, and the reasons. The acceptation platform has two types: electroniccommunication platform and network communication platform. In the analysis ofinformation acceptation platform, the degree of the public using the information inputdevice, system processes and management systems affect information input andautomatically acceptation. Information processing platform is divided into caseprocessing platform and comprehensive analysis platform. In case processing platform,the execution access, information real-time interaction, information integration,supervision and inspection system functions, as well as management systems ofe-government network and letters-and-visits information system affect the timely processing information. In comprehensive analysis platform, system functions ofinformation collection, information storage, information analysis and sharing, andmanagement systems of gathering public opinions, analyzing public opinion, openinggovernment information all affect the using and sharing of information.The part of conclusion proposes strategic suggestions to keep letters-and-visitschannel unblocked. This part concludes three respects: the rationalization of systemand refinement of the mechanism, the upgrades of technology and improvement ofmanagement, and the change of ideas and internalization of quality. Straighten out thesystem of letters-and-visits from the powers-responsibilities of main bodies and scopeof items. Refine working mechanism through the standard operating procedures underthe concept of procedural justice and perfect personalized way of dealing with under theconcept of substantive justice. It is necessary to upgrade a variety of technology ofsystems and improve the compatibility between systems at the process of applying themodern path of letters-and-visits and a variety of automated office software to thenational system of information management, thus ensuring the integrity andconnectivity of the technology applications of letters-and-visits. At the same time, it isnecessary to strengthen the management of the call centers, the e-mail, the web-site ofthe government and the information system of letters-and-visits, to guarantee theconsistency and continuity of the technology management of letters-and-visits. To therelated institutions and workers, they must make "dealing the letters-and-visits"equivalent to "receiving the letters-and-visits" and make "special cases" equivalent to"total case" on the transformation of concept, and have a correct understanding of theirown position. To the masses, they must recognize the advantages and disadvantages ofeach pattern of Letters-and-Visits, change long-standing awareness of "blue sky", andlearn to lawfully political participation.更多还原