如何走好“最后一公里”?——基层政府创新的“制度适应”机制

A Study on the Mechanism of“Institutional Adaptation”for Grassroots Government Innovation

作为具有漫长行政链条、幅员广阔的国家,基层各主体利益多元导致的基层政策执行偏差长期存在,而基层政府创新则在现有政策动员基础上,提供了促进国家政策执行的新手段。本文以X县基层组织创新为例,采用"制度适应"机制分析框架,通过访谈和二手资料分析等方法,深入剖析基层政府创新的动力机制,以解决承载高度政治承诺的统一性国家政策执行的"最后一公里"问题。本文发现,基层政府的创新离不开对国家政策执行宏观基础条件与微观政策场域的双重评估;在接踵而至的国家战略和持续问责压力背景下,当之前政策绩效与政策要求存在较大差异、产生多维不适应时,基层政府将通过"制度适应"机制而创新开展政策动员,以规避上级政府可能对本地持续的负面注意力,即弥合"文本-情境"的不适应便是制度创新的主要动机。本文的意义在于采用的制度适应机制框架丰富了政策创新研究的分析视角,充实了基层政府创新的动力机制。

As a country with a long administrative chain and a vast territory,grassroots policy implementation deviations due to multiple interests orientation of different grassroots actors have been existed for many years,while grassroots government innovation provides a new means to promote national policies implementation based on existing policy mobilization.This article adopts an analytical framework of“institutional adaptation”mechanism to clarify the dynamics of grassroots government innovation through interviews and secondary data analysis,in order to solve the“last mile”implementation problems of unified national policies that carry a high degree of political commitment.This article finds that the innovation of grassroots governments is inseparable from a dual assessment of the macroeconomic base conditions and micro policy field of national policy implementation.In the context of continuous national polices requirement with accountability pressure,when the previous policy performance differs significantly from the policy requirements,resulting in multi-dimensional maladaptation,grassroots government will be able to innovate through“institutional adaptation”mechanism to improve implementation performance and avoid the possible continuous negative attention from higher levels of government.The main motivation for institutional innovation is to bridge the“text-context”maladaptation.The adoption of institutional adaptation mechanism framework in government innovation research enriches the analytical perspective of policy innovation study and motivation mechanism of grassroots government innovation,further explaining the possibility of grassroots government innovation under the pressure system.