纵向政府间的分工与协作如何促进脱贫绩效生产?——基于纵时段进程的多案例研究

How Division and Collaboration within Vertical Government System Drives Anti-Poverty Performance Production?——Multiple-Case Study Based on the Longitudinal Process

已有研究多将精准脱贫过程解构为自上而下的“政治任务型治理”,对纵向维度的政府间互动与治理模式多样性考察不足。本文在辨析省级与市县级政府在治理模板创设及其技术性规定的过程互动基础上,建立分析框架探讨地方脱贫模式的类型差异。基于A省纵时段的多案例分析,研究认为,地方脱贫模式呈现嵌套叠加而非单一线性特征,具体表现为按部就班的程式性执行、敛合资源的下沉式执行、贴合情境的变通式执行与由点及面的反馈式执行四重类型。多重治理模式作为上下层级政府协同治理的经验表达,不仅表征为科层体系与外在情境的不同联结方式,而且展现了中国政府组织体制解决重大公共事务的弹性调适能力。论文的潜在创新在于,通过反思“上级命令发包-下级分拣抓包”分析范式,廓清了纵向政府间分工协作与治理模式形塑机理,为理解“中国如何摆脱绝对贫困”提供了有益视角。

Current studies tend to define implementation process of Targeted Poverty Alleviation as the "up-to-down political task", hardly discuss issue about intergovernmental interaction and the diversity of governance patterns withinvertical government system. This paper constructs an analytical framework to explore differences existed in the multiple types of anti-poverty governance patterns, based on the feature analysis of interaction process by distinguishing provincial government and municipal(county) government’s impact on governance-template design and technological stipulation. Using longitudinal multiple-case study design of A province, this paper shows that core characteristic of anti-poverty governance patterns among local dimension is "nested and superposed", rather than "single or linear". Specifically, there are four anti-poverty governance patterns, procedural implementation that "step-by-step", flexible implementation that "adapt to situation", collaborative implementation that "up-to-down resources support" and the feedback-diffusion implementation that "from point to surface", have been identified and described. Conclusion shows that four types of anti-poverty governance patterns, as the empirical reflection of typically collaboration governance within vertical intergovernmental network, not only approve different connect forms between bureaucracy system and complex anti-poverty governance situation, but also show prominent governance ability and resilience of Chinese intergovernmental-organization system to solve crucial public affair. Marginal contribution of this study is identifying division and collaboration based on intergovernmental interaction among vertical bureaucracy system and governance patterns’ forming mechanism in the complex governance situation, through revised traditional analysis model of "up-to-down administrative subcontract that launched by higher-level government and implemented by lower-level government", thereby provided a beneficial perspective to understand theoretical puzzle that "how China escaped the absolute-poverty trap".