数字化转型背景下公共服务创新路径研究——基于多中心—协同治理视角

Innovation Path for Public Service in the Context of Digital Transformation——Based on Polycentric-Collaborative Governance Perspectives

以新一代移动互联网、人工智能、大数据为代表的新兴技术正深刻地影响着社会形态和政府行为。数字创新如何赋能推进公共服务创新,是影响国家治理体系和治理能力现代化的重要内容。该研究基于公共服务创新发展趋势和相关理论基础,通过扎根理论与多案例研究方法,运用深度访谈数据,构建对这一议题具有研究适应性的"多中心—协同治理"理论分析模型。在此基础上,对杭州、贵阳、广州等地数字赋能公共服务创新的实践进行比较研究发现:数字技术为公共服务创新的多中心治理结构提供了更强的包容性,也丰富了其治理方式;基于"多中心—协同治理"理论模型,公共服务创新更容易实现自驱动,分工机制和协同机制是关键所在;地方政府实现公共服务创新的关键在于识别本地核心优势,在主体协同性和主体多元性方面实施不同匹配方案从而促进价值共创;基于不同核心要素,公共服务的创新实现路径包括政府牵头—应急开发、政府发起—产业拉动、企业主导—平台供给等类型;不同类型的多中心治理方式会影响公共服务创新的区域性实现路径,协同主体的同质性和异质性是影响多中心治理方式的重要因素。该研究从理论和实践层面打开数字化转型背景下公共服务创新的治理模式选择和路径实现的"黑箱"。

Big data, artificial intelligence, and mobile Internet as the representative of emerging technologies are profoundly influencing social patterns and government behaviors. Digital technology with typical characteristics such as network, intelligence and mobility constantly drives service innovation and provides effective technical support for public service innovation. In the context of digital transformation, digital technology empowers public services by data sharing,business collaboration and system collaboration, promotes the innovation of public services from several dimensions including power mechanism, supply mode, service mode and service content, realizes the refinement and effectiveness of services, and even changes the underlying logic of public services. How to leverage digital technology to promote public service innovation under the background of digital transformation to realize the modernization of national governance system and governance capacity has become an important issue at present.Based on the development trend of public service innovation and relevant theory of public governance, this study proposes an analytical framework of" polycentric-collaborative governance ". Through the comparative study of public service innovation practices in Hangzhou, Guiyang and Guangzhou, it is found that: Firstly, digital technology provides a more inclusive governance structure for public service innovation and enriches its governance mode. Secondly, the mechanism of"polycentric-collaborative governance"promotes the self-drive of public service innovation, and the key is the division mechanism and the collaboration mechanism. Thirdly, the key for local governments to realize public service innovation is to identify its core advantages and co-create public value through matching different combinations in terms of subject synergy and subject pluralism. Forth, based on different core elements, digital innovation models of public services include government led-emergency development, government sponsored-industry driven, enterprise led-platform supply. Lastly, different types of polycentric governance would affect the regional realization path of public service innovation, and the homogeneity and heterogeneity of collaborative subjects are important factors to affect the polycentric governance mode. In short, this study opens the" black box "of governance mode selection and path realization of public service innovation in the context of digital transformation from the theoretical and practical perspectives.This article has preliminarily constructed the theoretical framework of"polycentric-collaborative governance", which is a beginning of the research on public service innovation under the background of digital transformation. There are still many problems to be further explored. Firstly, the internal logic of the two theories needs to be further analyzed in order to achieve better self-consistency and balance in the whole analytical framework. Secondly, this paper makes a holistic analysis of the labor mechanism and collaborative mechanism in the self-driven process of public service innovation, and has not yet analyzed the role evolution process of different actors in stages. Thirdly, based on the cases of public service innovation in Hangzhou, Guiyang and Guangzhou, this paper applies the grounded theory to analyze, and the research conclusions may have certain limitations. Therefore, whether the self-driven mechanism and implementation path of public service innovation obtained in this study are universal, and its applicability and effect sustainability in different regions need to be further demonstrated. Fourth, as public service innovation in the digital transformation scenario, researchers can accumulate more material for vertical depth of case analysis. At the same time, researchers also can combine the quantitative analysis to adjust the proposed model, further put forward governance mode and implementation path together which embedded in the institutional environment and governance practices of China.