中国情境下政策执行中的“松散关联式”协作——基于S河流域治理政策的案例研究

"Loosely-coupled"Collaboration of Policy Implementation in China:A Case Study on the Governance Policy of S River Basin

基于S河流域综合治理政策案例,本研究分析了地方和基层政府如何在多重目标和多重政策任务叠加的不确定情境下采取松紧节奏变化的政策执行行为,继而在政策“执行—修改—适应—再修改—再适应”中与政策多方行动者形成“松散关联式”协作,最终促成了政策的有效执行。“松散关联式”协作是政策行动主体之间的非完全合作治理,体现为正式制度的“严丝合缝”与非正式协商的“松散关联”、政府部门间的“坚持原则”与“灵活变通”、基层政府与民众间的按程序办事与权宜之计等矛盾形式的共存。“松散关联式”协作作为不确定性的应对机制具有可伸缩性、灵活性和纠错性的功能特征。在中国情境下,公共政策过程能够在不断变化和调整中得以有效推进,有赖于上级领导的支持与基层松紧节奏变化执行的配合,层级政府、企业、民众在公共价值上取得的共识,以及政策跨时空、跨域的“在地化”修订与整合。在此意义上,“松散关联式”协作为理解中国政策过程中不同主体间的互动关系和政策的有效执行提供了一种方式。

Based on the case of S River Basin comprehensive governance policy,this study analyzes how local and grass-roots governments adopt the policy implementation behavior characterized with the loose-tight rhythm in the changing policy environment,and then form a"loosely coupled"collaboration with policy actors in the process of"implementation-modification-adaptation-remodification-readaptation",which finally promotes the effective implementation of the policy."Loosely coupled"collaboration is a form of incomplete cooperative governance among policy actors,which is reflected in the coexistence of contradictory forms such as the"fitting together perfectly"of the formal system and the"loose coupling"of informal consultation,the"adhering to principles"and"flexible adaptation"between government agencies,and the procedural and expedient measures between grass-roots governments and the public.As a response to uncertainty,"loosely coupled"collaboration has the characteristics of scalability,flexibility and error correction.In the context of China,the public policy process can be effectively promoted in continuous change and adjustment,which depends on the cooperation between strong support of superior leaders and the street-level bureaucracies with the change of loose and tight rhythm,the consensus on public values reached by governments,enterprises and the public at all levels,as well as the"localized"revision and integration of policies across time,space and regions.In this sense,"loosely coupled"collaboration provides an approach to understand the interaction between different subjects in the process of China’s public policy and the effective implementation of the policy.