压力聚合与结构利用:常规政策执行情景中基层政府何以逆向推动条块协作  

Pressure Extrusion and Structure Utilization:Can Grassroots Governments Promote Tiao-kuai Collaboration from the Bottom-up?

作　　者：黄源源 唐银彬 Yuanyuan Huang;Yinbin Tang

机构地区：[1]中山大学政治与公共事务管理学院

出　　处：《公共行政评论》2024年第6期40-59,M0004,共21页Journal of Public Administration

基　　金：国家社会科学基金重点课题“中国共产党领导基层社会治理的整合机制比较研究”(23AZZ001)。

摘　　要：基层政策执行常因条块割裂而陷入困局,条块积极协作成为推动政策落地的关键。现有研究多以高激励或高风险的非常规政策为执行情景,关注由具备相对势能优势的上位“块”及“条”发起的条块协作,对常规政策执行情景以及作为下位“块”的基层政府的主动协作行为则观照不足。本文试图超越执行情景与结构的约束,找回常规政策执行情景中基层政府的协作自主性。通过对H县A街道旧改政策从悬置到落地的执行演变过程的分析,发现基层政府具备逆向推动条块协作的动机、空间与能力:常规政策中上位“条块”的弱介入以及基层政府的不可退出性使后者面临多重压力聚合,激发其逆向推动协作的动机;有限分割的执行结构所塑造的责任连带以及基层政府持有的在地资源,建构其逆向推动协作的空间,使其能通过对信息、关系与社会资源的借势而为促成有效协作。然而由下位基层政府主导的条块协作路径存在触发条件应急性、协作过程非稳定性、协作效能有限性的行为限度。对常规政策执行情景中基层政府逆向推动条块协作的路径探究,有助于完善基层场域的条块关系讨论,找回中国公共政策研究的“常规叙事”。Active cooperation between functional departments(“tiao”)and grassroots governments(“kuai”)is the key to policy implementation,despite the difficulties caused by the fragmentation between the two.Existing research tends to focus on high-incentive or high-risk policies as implementation scenarios and on tiao-kuai collaboration initiated by higher-level governments and departments.What\s missing is a view of the implementation scenarios of conventional policies and the proactive role of grassroots government.This article goes beyond the constraints of implementation scenarios and structures to retrieve the collaborative autonomy of grassroots governments in the conventional policy implementation scenario.By analyzing the implementation process of the old reform policy for Street A in County H,we found that the grassroots government has the motivation,space,and ability to promote tiao-kuai collaboration.First,higher government\s weak involvement in conventional policies and the non-exitability of the grassroots government make the latter the first to face the convergence of multiple pressures,creating the need for collaboration.Second,the responsibility linkage in a limited and segmented implementation structure and on-the-ground resources held by grassroots governments contribute to the construction of a space for cooperation.In this space,grassroots governments can leverage information,relationships,and community to enable effective collaboration.In fact,tiao-kuai collaborations are dominated by the grassroots government but hampered by contingent triggering conditions,the instability of the cooperation process,and the limited effectiveness of the cooperation.Exploration of tiao-kuai cooperation,with the grassroots government as the main body,can help to improve the path of tiao-kuai cooperation in the grassroots arena and to recover the“conventional narrative”of policy research in China.

关 键 词：基层政策执行 条块关系 基层自主性 常规政策 

分 类 号：D63[政治法律—政治学]