层级治理体系下的政策注意力识别偏好与政策采纳——以省级“互联网+政务服务”平台建设为例

Policy Attention Identification Preference and Policy Adoption under the Multilevel Governance System——Evidence from the Construction of Provincial "Internet+Government Service" Platform

地方政府在响应中央政策信号时差异化的政策属性偏好会如何影响其政策采纳,研究这一问题兼具理论和实践价值。本文基于2006—2018年省级"互联网+政务服务"平台的建设历程数据,采用离散事件史和广义结构方程模型进行定量研究。研究发现:政策注意力在纵向传导中存在偏好经济属性的特征。首先,中央政策文件的发布不仅可能直接推动省级平台建设,还可能通过将省级注意力更多地配置到政策的经济属性上间接推动平台建设,但却难以通过将省级政策注意力更多地配置到行政-社会属性上来调动平台建设的积极性。其次,政策注意力在纵向传导中所表现出的经济属性偏好通常在欠发达、高失业率、民众经济满意度较高的省份更加明显。本研究从政策注意力视角提出了中央政策在地方采纳和执行过程中出现差异化的解释路径,也为政府部门协调多元政策属性提供了参考。

This study aims to explore the research question: How differentiated policy attribute preference affecting policy adoption of local government when responding central policy signals. Using data on the construction of provincial "Internet + Government Services" platform, this study employs discrete-time event history analysis and generalized structural equation model to conduct empirical analysis. The findings reveal that: Local governments exhibit policy preferences for economic attribute of a certain policy along the vertical "top-down" chain of policy attention transmission. First, the intensive release of central policy documents not only directly promote the construction of provincial platforms, but also indirectly promote the construction of provincial platforms by directing more provincial policy attention toward the economic attribute of the policies. However, central policy attention cannot improve platform construction by directing more provincial policy attention toward the administrative-social attribute. Second, the policy preference of economic attribute along the vertical chain of policy attention transmission is more obvious in the provinces with less developed economies, high unemployment and high citizens satisfaction with local economic development. This study has practical implications for governments in terms of balancing multiple policy attributes in decision-making. Based on the perspective of policy attention, this study help us better understand the differences in local adoption and implementation of central-governments initiated policies.