折中治理:高风险约束情境下基层政府政策执行的策略研究——以G镇粉浆水治理为例

Compromised Governance:A Study on the Strategy of Grass-Roots Government Policy Implementation under the Situation of High-Risk Constraints——Taking the Treatment of Starch Slurry Water in G Town as an Example

本文基于政策执行的压力-抗力组合建构了基层政府的高、中、低不同等级的风险约束情境,试图探究不同风险约束情境对基层政府政策执行的影响以及消解高风险约束的策略。通过对G镇粉浆水治理案例的研究发现,风险情境转换是基层政府环境政策执行调整的重要影响因素,在不同等级的风险约束情境下,G镇粉浆水治理政策执行可以分为“巡查式”治理、“包保式”治理和“开口式”治理三个阶段。基于案例经验,提出“折中治理”的概念用于解释基层政府在高风险约束情境下政策执行的风险规避策略。作为风险规避策略的折中治理得以可能与政治机会结构、文化机会结构、技术机会结构和社会机会结构等因素有关。折中治理广泛存在于高风险约束情境下基层政府的政策执行实践中。作为一种权宜性风险规避策略,折中治理会产生一定的消极后果,需要消除基层政府具有负面效应的风险规避策略。

Based on the pressure-resistance combination of policy implementation,this paper constructs the high,medium,and low-level of risk constraint situations of grass-roots government,and attempts to explore the impact of different risk constraint situations on grass-roots government policy implementation and its strategies to eliminate high-risk constraints.Through the study of the case of G town starch slurry water treatment,this paper finds that the change of risk scenario is an important factor affecting the implementation of environmental policies by the grass-roots governments.Under different levels of risk constraints,the implementation of starch slurry water management policy in G town can be divided into“patrol”governance,responsibility guarantee governance and exception permission governance.Based on the case experience,the concept of“compromised governance”is proposed to explain the risk aversion strategy of policy implementation of grass-roots governments in the context of high-risk constraints.As a risk-aversion strategy,the compromised governance can be related to political opportunity structure,cultural opportunity structure,technical opportunity structure and social opportunity structure.Compromised governance is widely found in the policy implementation practice of grass-roots governments under high risk constraint situations.As an expedient risk-aversion strategy,compromised governance will have certain negative consequences.It is necessary to eliminate the risk-aversion strategy with negative effects on grass-roots government.