“试点”何以失败？--A市生活垃圾“计量收费”政策试行过程研究

Shidian as a Chinese Style of Governance:A Case Study on the Policy Experiment of “Pay as You Throw”

作为一种以局部试验带动整体改革的渐进式治理机制——"试点",被广泛运用于我国各级、各类地区的各部门中。已有研究关注的焦点多在该机制的得失,但对"点"——试点的具体承载——着墨不多。本文呼吁把"点"带回试点研究,以分析试点的微观机制——即试点如何内嵌于科层体系之中。本文选取A市生活垃圾"计量收费"试点项目为个案,试图还原一个试点的过程始末,剖析其中各行动主体的利益诉求和行动策略、呈现试点运作的细节和全貌,并在此基础上深入分析试点制对国家治理能力的作用。研究发现,试点过程中行政资源和目标的"漏斗"属性、试点的程式化和多点运作等特征消解了试点的目的和作用,试点同样被科层化了。

Policy experiments have long been considered as a distinguished feature of the policy process in China.Recent research leads to a debate about the effect of policy experiment on the governance of the Chinese government.Based on a case study of the'pay as you throw'policy experiment carried out in a city in southern China,this study explores the process of a policy experiment,the related interest groups'responses and its policy consequences.Qualitative data collected from in-depth interviews,participant observation and documentary analysis reveals that the policy experiment is embedded in and captured by the governmental bureaucracy.The positive effect of policy experiment in China's state capacity has been over-exaggerated.