不成比例的信息处理与议题优先权竞争——一个政府绩效指标议程的案例研究

Disproportionate Information Processing and Issue Priority Competition:A Case Study of Government Performance Indicator Agenda:The disproportiona

地方政府绩效指标议程是中国场景下议题优先权竞争的动态过程,各利益群体对议题优先权的激烈争夺给决策者带来了指标治理的实践困境。目前,国内外学术界关于政府指标治理的研究大多关注指标形成后的指标治理结果,较少从信息理论视角分析指标生产环节的动态化运行机制。本文以A省政府考核指标议程为例,发现在二元优先议题的差序格局下,由于信息处理不成比例,指标备选议程、指标确定议程和指标调整议程出现了指标入口"把关难""确定难"和"退出难"三重困境。决策层运用指标申报制度化、指标评审制度化和指标实施效果评价制度化破解了困境,让生产出的年度指标体系成为决策层、政府部门、基层政府、专家智库和民众等各利益群体偏好达成一致的优先议题结果。本研究用决策者对信息处理的不成比例来解释指标治理过程中议题优先权竞争的内在逻辑,并为解决政府指标议程困境提供了制度性的解决对策。

The disproportionate information processing implicates the scarcity of government's attention.Decision makers need to prioritize multiple sources of information.The agenda of local government performance indicators is the embodiment of the government management problem of issue priority competition in China.Extant literature on government indicator governance mostly focuses on the static level such as building of static indicator model,but few on the dynamic agenda of government indicators from building to withdrawal.As a case of Province A's performance indicator innovation,based on the disproportionate information processing,our study finds that the indicator alternative agenda,the indicator determination agenda and the indicator adjustment agenda have three dilemmas:"difficult to access" "difficult to determine" and "difficult to exit" under the differential structure of dual priority issues.Therefore,the decision-making level has solved the dilemmas by using the institutionalization of indicator application,indicator review and indicator evaluation.As a result,all of the inside and outside interest groups have agreed on the final priority issues,which is produced by the indictor agenda.This study not only explores the information theory to explain the internal logic of the issue priority competition in the indicator agenda in China,but also provides institutional solutions to the dilemma of the government's indicator agenda.