政策兼容性与地方政府政策再发明——基于科技特派员制度的案例追踪与比较

Policy Compatibility and Policy Reinvention of Local Government: Lessons from the Process-Tracing and Comparison of the Technical Task Force System

地方政府采纳政策创新为什么产生了差异化结果?政策扩散研究往往将政策创新视作"常量"而非"变量",较少关注政府采纳创新时政策内容的变化,即政策再发明。基于此,论文从政策目标兼容性与政策工具兼容性的维度区分了填充式、剪贴式、转向式和层叠式四类地方政府政策再发明模式,并借助政策文件、学术研究以及新闻报道等公开数据,运用过程追踪和案例比较的方式,通过宁夏回族自治区、安徽省、广东省与海南省四个省(自治区)级行政区采纳科技特派员制度的案例予以验证。研究发现:首先,地方政府采纳政策创新时,可以分别对政策创新中的政策目标或政策工具进行再发明。其次,地方政府政策再发明受到政策兼容性——同一政策领域内,政策创新与地方政府已有政策实践相一致程度——的影响。最后,当政策目标兼容性与政策工具兼容性同时较高或较低时,均会导致较低的政策再发明水平;而当政策目标兼容性与政策工具兼容性高低组合时,均会导致较高的政策再发明水平。论文构建了地方政府政策再发明的类型学框架,为理解中国公共政策过程提供了新的视角,为讨论政策再发明增添了新的变量。

Why does the adoption of policy innovation by local governments produce different results?Policy diffusion studies tend to treat innovation as a constant rather than a variable.Less attention is paid to changes in policy content,that is,policy reinvention.This article proposes a framework of policy reinvention from policy goal compatibility and policy tool compatibility,conceptualizing four policy reinvention types:filling reinvention,copy-and-paste reinvention,conversion reinvention,and layering reinvention.Based on our process-tracing and cross-case comparative analysis of policy documents,academic researches,news reports,and other data,this paper illustrates four cases of Technical Task Force System adoption in Ningxia,Anhui,Guangdong and Hainan.First,we learned when local governments adopt policy innovations,policy goals and tools can be reinvented separately.Second,policy reinvention is affected by policy compatibility,that is,the degree of consistency between the policy innovation and local government’s existing policy practices in the same area.Third,when policy goal compatibility and policy tool compatibility are both higher or lower,it will lead to a low level of policy reinvention.But,when policy goal compatibility or policy tool compatibility is a combination of high and low levels,it will lead to a high policy reinvention level.This study presents a new perspective on the reinvention of local government and policy processes in China.