外源压力、内生动力与基层政府政策执行行为选择——基于A市生态环境治理的案例比较分析

External Pressures,Internal Motivations and the Policy Implementation Behavior Choice of Local Governments——A Comparative Analysis on the Cases of Eco-Environment Management in City A

基层政府政策执行行为是实现政策输出与效果相匹配的关键。立足政策执行过程视角探索政策执行主体行为选择的动力因素与作用机制,能够更好地对基层政府政策执行行为选择的差异性作出解释。本文通过对A市在同一时间的生态环境治理中出现的迥异的政策执行行为进行过程追踪与分析,提出了解释基层政府政策执行行为选择的“外源压力-内生动力”框架。研究发现:外源压力与内生动力既存在高度契合、部分契合、相互冲突三种情况,又存在外源压力强于内生动力和内生动力强于外源压力两种博弈状态;基层政府政策执行行为相应出现规范有序、等待观望、选择执行、集中整治和执行过度等情况。本研究认为:应增强公共政策的纲领性和指导性作用,重视政策目标的统一性与执行行为的多样性、执行效果的差异性的关系,强化基层政策执行中的多元参与,加强集中统一领导。

The objective of this paper is to explore the driving factors and mechanisms of grassroots policy executors'behavior selections from the perspective of policy implementation process,and to theoretically explain why there may be differences in policy execution behavior selection.An exploratory multi-case study was conducted to track and analyze the process of different policy implementation behavior choices in the ecological environment governance of city A in southern China.It found,there are three situations where external pressure and endogenous power are highly compatible,partially compatible,and conflicting.There are two game states in which external pressure is stronger than endogenous force and endogenous force is stronger than external pressure.The implementation of policies by grassroots governments has resulted in standardized and orderly behavior,wait-and-see,selective implementation,centralized rectification,and excessive implementation.The main limitation of this study is that it lacks a quantitative measurement method for the pressure/driving factors and their mechanisms of action,which makes it difficult to explore the patterns of policy implementation behavior choices of a large number of grassroots governments.Another difficulty comes from the hierarchical differences between local governments,where governments closer to the upper and lower levels face different pressures or motivations.And further research can differentiate them.The"external pressure-endogenous motivation"framework proposed in this article provide a universal explanation for grassroots governments'policy implementation behavior,and reasonably explains a series of problems and phenomena in grassroots government policy execution.The policy recommendations of the article are to provide policy texts that are in line with reality,achieve the unity of the willingness of upper and lower level governments to implement policies,strengthen diverse participation and full process democracy in grassroots policy implementation,and strengthen centralized and unified leadership.Based on previous research on policy implementation,this study explains why the same grassroots executors exhibit vastly different policy implementation behaviors at almost the same time.The framework of"external pressure-endogenous motivation"proposed in the study is based on the perspective of policy execution process,exploring the driving factors and mechanisms of policy execution subject behavior selection,and explaining why there may be differences in policy execution behavior selection.