中央推进政策试点的差异化政策工具选择逻辑——基于20个案例的定性比较分析

The Choice Logic of Differentiated Policy Tools for Central Government Promotion of Policy Pilots:A Qualitative Comparative Analysis of 20 Cases

政策试点已被广泛视为中国特色的治理模式之一,是解释“中国奇迹”的关键所在。然而,既有研究主要从政策试点的发生机制、推广逻辑和知识生产等视角来解析试点中政府的运作过程,并未对中央通过选择差异化政策工具来推进政策试点给予足够的关注。从中央干预程度与地方自主性两个维度出发,论文区分了中央推进政策试点的四类政策工具:指令型、激励型、诱导型与自主型。进而,论文构建了政策工具选择的“政策属性-政策环境”分析框架,运用定性比较分析法,对中央发起的20个试点案例进行深入分析,揭示差异化政策工具选择的生成机理。研究发现,中央选择何种类型的政策工具受试点内容清晰度、议题紧迫性、执行难度、政策支持和权威压力之间相互作用的影响,主要呈现出内外复合驱动、外部权威驱动和外部政策驱动三种不同的逻辑。其中,内容清晰度是政策工具选择的前置条件,议题紧迫性调节中央干预程度,权威压力凸显中央对政策工具的总体控制。研究丰富了对中国政策试点机制和试点差异化推进方式的解释,对政策试点的科学设计也具有启示:围绕政策试点目标的达成,政策试点的推进需要根据试点目标群体、政策属性和政策环境特征选择与之相匹配的政策工具。

The policy pilot has been widely regarded as one of the governance models with Chinese characteristics which helps explain the Chinese miracle.However,the existing studies analyze the government s pilot operation process from the perspectives of the occurrence mechanism,promotion logic,or knowledge production in the policy pilot;they pay scant attention to the central government s choice of differentiated policy tools to promote policy pilots.From the two dimensions of central intervention and local autonomy,this paper examines four types of policy tools the central government uses to promote policy pilots:directive,incentive,inducement,and autonomy.Furthermore,this paper constructs the policy attribute-policy environment analysis framework for policy tool selection,and then uses qualitative comparative analysis to analyze 20 pilot cases initiated by the central government.This analysis reveals the generative mechanisms of differentiated policy tool selection.This study found that the type of policy tools chosen by the central government is influenced by the clarity of the pilot content,the urgency of the issue,the difficulty of implementation,and the interaction between policy support and authority pressure,which forms three different logics:internal and external composite drive,external authority drive,and external policy drive.Among them,the clarity of content is the precondition for the choice of policy tools,the urgency of issues regulates the degree of central intervention,and the pressure of authority highlights the central government s overall control over policy tools.This paper enriches our understanding of China s policy pilot mechanisms and differential promotion modes.The study s findings have implications for the scientific design of policy pilots,including securing the achievement of policy pilot objectives and matching policy tools according to each pilot s target groups,policy attributes,and policy environment characteristics.