政策工具视角下市域社会治理现代化政策试点的扎根分析——基于全国60个试点城市的研究

A Grounded Analysis of Urban Social Governance Modernization Policy Pilot from the Perspective of Policy Tools——Research on 60 Pilot Cities in China

自中央在2018年正式提出市域社会治理现代化以来,全国各地逐渐掀起一股试点热潮。已有研究多集中于市域社会治理现代化的概念辨析、价值确认和路径建构,缺乏对其"试点"的关注,更缺乏对其运用的政策工具进行类型学分析。本文选取扎根理论研究方法,基于政策工具视角,遵循市域治理政策试点的"动力机制-政策之窗-工具类型-政策目标"的分析思路,对全国60个试点城市市域社会治理现代化政策的文本进行了剖析。研究得出,压力型体制下的纵向层级压力、锦标赛体制下的横向竞争压力和治理困境下的现实需求构成了市域社会治理试点的三重动力;中央发出试点号召形成机会之窗,进而地方政府间达成联盟制造共识之窗;归纳出政策试点中运用的基础型、创新型、协同型、激励型四类政策工具。基础型和协同型的常规工具运用较多,创新型和激励型工具彰显出巨大的潜力。研究可弥补市域社会治理的"工具盲点",亦可为政策执行提供一套完备的工具箱。

Since the central government formally proposed a new concept of modernization of urban social governance in 2018,a wave of pilot projects has gradually started across the country.Most of the existing researches focus on the concept analysis,value confirmation and path construction of the modernization of urban social governance,lack of attention to its“pilots”,and lack of typological analysis of the policy tools used by it.The article selected grounded theoretical research methods,based on the perspective of policy tools,and followed the analysis of“motivation mechanism-policy window-tool type-policy target”of the municipal governance policy pilot,and carried out the text of the social governance modernization policy in 60 pilot cities across the country.The study concludes that the vertical level pressure under the pressure-based system,the horizontal competition pressure under the bidding system,and the real demand under the governance dilemma constitute the triple motivation of the municipal social governance pilot;the central government issues a pilot call to form a window of opportunity,and then the local government’s window of consensus is reached between alliances;the four types of policy tools used in policy trials are summarized:basic,innovative,collaborative,and incentive.Basic and collaborative conventional tools are widely used,and innovative and motivational tools show great potential.Research can make up for the“tool blind spots”of municipal social governance,and can also provide a complete toolbox for policy implementation.