“高模糊-高冲突”政策实质性执行:一个创新性的中国方案——以重庆市公共资源交易服务组织“事转企”改革为例

Substantive Implementation of High Ambiguity and High Conflict Policy:An Innovative Chinese Solution——A Case Study about Chongqing Public Resource Trading Centers Transforming into State Owned Enterprises

“高模糊-高冲突”政策执行阻滞是政策过程的经典议题。作为回应这一科学问题的三种路径,即象征性执行、政治性执行以及被动变通性执行,既没有解决政策冲突难题,也忽视了对中国情境下创新性经验的挖掘。本文以重庆市公共资源交易服务组织“事转企”改革为例,分析提炼了“高模糊-高冲突”政策主动变通性执行的典型经验。研究发现:主动变通性执行的思维是“变”,体现为中国地方政府与国有企业的联结、组织学习和政策新解,有利于化解政策的“高模糊”;愿景吸引、方案沟通和利益协商是“通”,尤其是在国有企业优势和能力的作用下有利于化解“高冲突”。地方政府和国有企业基于组织学习和政策营销机制,使政策由高模糊走向明晰化;国有企业基于愿景吸引与价值平衡机制、方案沟通与资源整合机制、利益协商与共赢选择机制,分别消解了政策目标的兼顾型冲突、政策手段的排除型冲突和组织人事和解型冲突。本研究既创新了“高模糊-高冲突”政策执行的路径且丰富了该理论的内容,也为“事转企”改革提供了最佳实践和创新性的中国方案,还通过“反吸纳”概念拓展了政府吸纳的范畴。

"High ambiguity-high conflict"approach of policy implementation is a classic research issue in the policy process.There are three ways to respond to this scientific problem,namely symbolic implementation,political implementation and passive flexible implementation.They don’t solve the problem of policy conflict,also ignore the exploration of innovative experience in China.An exploratory case analysis method is used to carry out the reform of"transforming public service unit(PSU)into state owned enterprises(SOE)"about public resource trading centers in Chongqing.We refine the typical experience of active flexibility implementation of"high ambiguity-high conflict"policy.The study finds that,the active flexibility of the implementation of thinking is named"changing".It is based on the connection between local governments and state-owned enterprises in China,organizational learning and new policy solutions,also helps to resolve the"high ambiguity"of policy.Vision attraction,solution communication and interest negotiation are named"channel".Especially under the role of advantages and capabilities of state-owned enterprises,it is helpful to resolve"high conflicts".Local governments and state-owned enterprises implement organizational learning and policy marketing mechanism,making the policy from high ambiguity to clarity.The mechanism of vision attraction and value balance in state-owned enterprises eliminates the conflict of policy objectives,the mechanism of implementation plan communication and resource integration eliminates the conflict of policy means exclusion,and the mechanism of interest negotiation and winwin selection eliminates the conflict of organization and personnel reconciliation.This study not only expands the policy implementation path of"high ambiguity-high conflict",but also provides the best practice and innovative Chinese scheme for the reform of PSU into SOE.It also expands the scope of government absorption through the concept of"anti-absorption".