政策执行中的“包保责任制”——以Q市创建国家卫生城市工作为例

The "Responsibility System of Baobao" in Policy Implementation:A case study of an entitlement to national sanitary model in Q city

本文基于对Q市创建国家卫生城市工作("创卫")的参与观察,以"包保责任制"为切入点,分析基层政府的政策执行过程,探讨了为什么基层的部分政策执行没有发生"变通"。"包保责任制"以责任分解和信息监督为核心,形成了一套以过程控制为主要特征的制度性联结,通过政治动员、任务分派、督查考核、奖惩问责等多个环节的运作,推动了政策任务在基层的落实执行。本文发现,"包保责任制"在责任分解、信息监督、激励奖惩等面向上的过程控制为基层的政策执行提供了一整套的责任分配和控制机制,这一机制不断压缩下级的"变通"空间,强化上级对下级的控制权,进而导致"变通"并未出现于某些政策执行中。本文还指出过程控制代表了一种直接控制的治理模式,这一控制方式可能给国家权威的贯彻带来极大风险。

Starting from the participant observation on Baobao Responsibility System in Q city implemented by the local government,this article investigates the implementation of it in the process of the National Sanitary City Construction(Chuangwei).Moreover,the article also explains why there are a few flexible and alternative approaches in the implementation of policies on the level of grass-roots organization.The Baobao Responsibility System focuses on distribution of responsibility,information and regulation.It establishes institutional connections featured by process control.Policies are implemented in the local government through multiple approaches of political mobilization,task assignment,supervision and appraisal as well as encouragement,rewards and punishments.The study finds that the ' Responsibility System of Baobao'(RSB) creates a complete set of responsibility distribution and control mechanism through the approaches above,which reduces the flexibility of lowerlevel government and strengthens the control of upper-level government.