“弱位”何以生“巧劲”?——中国草根NGO推进棘手问题治理的行动逻辑研究  

How Can the "Weak Position" Create "Smart Power"?——The Action Logic of Chinese Grassroots NGOs in Promoting the Governance of Wicked Problem

作　　者：谭爽[1] 张晓彤 Tan Shuang;Zhang Xiaotong(School of Law and Humanities,China University of Mining&Technology,Beijing,100083,China)

机构地区：[1]中国矿业大学(北京)文法学院,北京100083 [2]中国矿业大学(北京)文法学院行政管理系,北京100083

出　　处：《公共管理学报》2021年第4期137-151,175,共16页Journal of Public Management

基　　金：国家社科基金青年项目(17CGL038);中央高校基本科研业务费社科专项项目(2020SKWF01)。

摘　　要：公民需求的日趋多样化、管理主体的日益多元化、社会环境的日渐复杂化导致"棘手问题"频现,亟需基于价值管理的多元协同行动。在此背景下,"具有‘弱位’特征的草根NGO能否以及如何化被动为主动,在中国政治社会背景下推进棘手问题治理"成为新的学术增长点。本文依托探索性案例研究方法对垃圾焚烧污染防治场域进行历时观察,发现草根NGO表现出"弱位生巧劲"的行动逻辑。也即立基中国"以和为美""和而不同"的文化底色和威权主义的政治体制,以"公共价值生产"为轴心,通过巧立目标、巧定战略、巧设战术,依托"巧劲"而非"蛮力"来突破弱势,将利益相关方行动从"逆向"或"多向"转化为"同向",以"强政府、巧社会"格局化解棘手挑战。本研究不仅有利于提升棘手问题理论的系统化、精细化与本土化,为公共治理实践提出"中国方案";同时,有助于理解治理体系与治理能力现代化进程中的多元主体关系,为草根NGO的行动策略完善提供有益参考。The objective of this paper is to illustrate whether and how grassroots NGOs with weak positions can turn passivity into initiative to advance the governance of wicked problems in the context of Chinese politics and society. An exploratory case study,involving 12 NGOs in the field of waste incineration pollution prevention,was conducted. This paper found that:Grassroots NGOs show the action logic of "weak position generates smart power". In other words,based on China’s cultural background of "harmony in beauty" and "harmony in diversity" and China’s authoritarian political system,grassroots NGOs take "public value production" as the axis,and set goals,strategies and tactics skillfully,to break through the weaknesses by "smart power" rather than "brute force". Grassroots NGOs transform stakeholder actions from "reverse" or "multi-direction" to "codirection",solving wicked problems with a "strong government,smart society" pattern. The key limitation of the paper is that its findings need to be validated and refined by more and longer-term observations,as the practices of different institutions cannot be fully regulated and must depend on specific problem characteristics,field characteristics,organizational forms,etc. The practical implication of this paper is that it helps to understand the relationship among government,market and society in the process of modernizing governance system and governance capacity,and provides useful references for the improvement of action strategies of grassroots NGOs. The increasing diversity of citizens’ needs,the growing plurality of management actors,and the growing complexity of the social environment have led to the emergence of "wicked problems",which urgently require multifaceted and collaborative actions based on value management. The theoretical value of this paper is that it establishes a logical framework for grassroots NGOs to promote the governance of wicked problem. It helps to enhance the systematization,refinement and localization of the theory of wicked problem

关 键 词：棘手问题 环境治理 草根NGO 公共价值 垃圾焚烧 

分 类 号：C913[经济管理]