常规开展的“运动”:基于示范城市评比的研究

Initiating Campaigns Regularly:Based on the Study of Model Cities Contests in 333 Prefectures

"运动式治理"这一概念为学界所公认,用于描述使用运动的方式自上而下实现国家目标的治理手段,但这一概念还需要进一步细化分类。在实践中,常规运动因其开展的周期性、可预测性和评估客观性与举国运动和执行运动有着明显的差别,而竞争性示范城市评比正是其典型代表。本研究通过观察全国333个地级城市参与示范城市评比的情况发现,自1990年起,各地级城市获评的示范城市项目不断增加;而地方政府参与评比的动机主要有两个方面:一是为了缓解因为群体性事件和经济降速所带来的公众不满,二是有助于官僚动员下属和联系上级,从而形成上下级之间的纽带,这两者共同构成了地方政府注意力的分配准则。本研究对"运动式治理"这一概念进一步分类,丰富了其产生原因,认为常规运动的开展转移了群众的负面注意力,吸引了上级正面注意力,并通过官僚纽带使这种注意力变化意图成为可能,形成了一种"制度化的非制度安排",成为当代中国行政管理工具的重要拼图。

Campaign-style governance serves as the well-known concept in painting the picture that governments launch campaign to fulfil the national goal while it needs to be refined and classified.In practice,regular campaign is apparently different from national campaign and enforcement campaign due to its periodicity,predictability,and evaluating objectivity,which competitive model cities contest can be seen as the representative.This study tests model cities contests among the 333 prefecture-level cities and finds the total amount of model cities are increasing since 1990.According to the quantitative result,increase in protest events,the lower economic development speed,and the shorter tenure of local leaders lead to an increase in adoption of the model cities campaign by the local actors.In addition,if the cites serve as the hometown of the leaders of central government departments,the local actors are also more likely to apply for the model cities titles.The above factors can be classified into two dimensions of incentives,first alleviating public grievance and second strengthening bureaucracy linkage,which constitute the criteria for allocating the attention of local governments.This study further classifies the"campaign"and enriches its causes,and argues that the regular attention has diverted social negative attention as well as attracted positive attention of the superiors with the bureaucracy linkage make it possible,forming institutionalized non-institutional arrangement in China public administration.