中央行政指导的运作机制探析——基于省级政府网站建设的案例研究

Research on Mechanisms of Central Administrative Guidance ——A Case Study of China’s Provincial Government Portal Construction

行政指导是常规的国家治理策略,公共行政学领域却鲜有研究其运作逻辑。本研究基于控制权理论,以省级政府门户网站建设为例,分别从治理模式的类别归属、地方政府的动态响应机制以及中央治理模式的转变来剖析行政指导的运作逻辑。研究发现:行政指导作为松散关联型治理模式的常规治理策略,在政策执行上呈现出一种"发文—响应—实践—发文"的动态机制:尽管地方政府面临较弱的激励与约束环境,但在中央"潜在制度化"压力下依据中央发文而短期、波动式提升政策执行绩效;与此同时,行政指导有助于推动地方政策创新与扩散,而创新实践又为新一轮中央行政指导创设政策方案。研究还揭示出行政指导并非最优均衡解,中央的政策优先级和产权激励决定了治理模式的选择及其动态转变,进而型塑了中国国家治理模式多样性的丰富内涵。

In public administration literature,administrative guidance,as an essential governance model of the Chinese government,was not adequately studied.This paper discusses the operating structure of the central administrative guidance by using‘Control Rights’theory on the basis of the case study of the creation of the portal by provincial governments from 2005 to 2017.We focus on the following questions:What kind of governance model is administrative guidance?How do the local governments respond to the administrative guidance?How and why the governance modes change?We find that the administrative guidance is a kind of the‘Loose Association’governance model and follows a dynamic mechanism of"documents-enacting,reacting,innovating,and then a new round of documents-enacting".Lacking of incentives and restraints,local governments choose to react in temporary and fluctuant under the central potential institutionalization pressures.Meanwhile,the central administrative guidance promotes local policy innovation and diffusion,and then transforms local practices into central administrative guidance.This article reveals that the administrative is not the best choice for the central government,and the governance model choice is determined by the change of policy priority and the property incentives of governance model.The Chinese government shows its vitalities of national governance system.