可持续的地方政府创新何以可能?——多阶段政策制定框架下成都社会治理政策创新经验研究

How Is It Possible for Local Governments to Make Sustainable Innovation:A Study of Chengdu's Social Governance Policy Innovation Under a Multi⁃stage Policy⁃making Framework

“人走政息”和命名式创新是当前地方政府创新的常见问题,推进地方政府可持续性政策创新成为理论与实践的重要命题。本文通过构建“多阶段政策制定”分析框架,以个案研究的过程追踪法研究体现出可持续性创新的十余年成都社会治理政策创新历史经验,通过分析成都政策创新历史阶段间的关联机制,阐明地方可持续性政策创新的条件与机制。研究发现,地方政府在特定领域的政策创新通常会经历多阶段、长时段的过程,特定阶段创新的绩效与成本(包含风险)会影响到后续阶段中政策制定者的认识、政策执行者的认可,其中明确且正面的绩效会连同成本激活后续政策创新的结构,约束地方政治流废旧立新的动机,提供可持续性政策创新以前提条件。可持续性创新的机制使政策创新初始理念能在后续阶段中稳定地定义问题、选择方案,建设目标一致、手段契合的政策体系,理念的确立与扩散是地方政策创新领域中多主体自觉合作的产物。

Promoting local governmental sustainable policy innovation has become an important proposition in both theory and practice.By constructing the analytical framework of“multi⁃stage policy⁃making”,this paper studies the historical experience of Chengdu social governance policy innovation for more than ten years with the process tracking method of case study,and expounds the conditions and mechanism of local sustainable policy innovation by analysing the correlation mechanism between different historical stages of Chengdu policy innovation.It is found that the policy innovation of local governments in specific fields usually goes through a multi⁃stage and long⁃term process.The performance and cost(including risk)of innovation in a specific stage will affect the understanding of policy makers and the recognition of policy implementers in the subsequent stage.The clear and positive performance will activate the structure of subsequent policy innovation together with the cost,restrict the motivation of local political flow to innovate and provide conditions for sustainable policy innovation.The mechanism of sustainable innovation is that the initial concept of policy innovation can stably define problems,select schemes,and build a policy system with consistent objectives and means in the subsequent stage.The establishment and diffusion of the concept is the product of the conscious cooperation between various agents in the field of local policy innovation.