社会组织如何推动政社合作型政策创新扩散?——基于“议程触发-实施参与”框架的案例分析

How Can Social Organizations Promote the Diffusion of Government-Society Cooperative Policies Innovation?——A Case Study Based on the Framework of"Agenda Triggering-Implementation Participation"

政策创新及扩散是提升国家治理能力的重要途径,但学界一般关注的是政府及官员推动的政策创新扩散,对于社会组织推动的政策创新扩散缺乏探讨。本文基于政策过程阶段论,构建“议程触发-实施参与”分析框架,以深圳民间河长制扩散至惠州、柳州、南宁和济南为例,采用嵌入型案例研究设计,考察社会组织如何推动政社合作型政策创新扩散。依据议程触发意愿和实施参与程度,社会组织推动政社合作型政策创新扩散存在主动作为型、进取辅助型、积极回应型与顺水推舟型4种模式,且可以根据扩散地政策主体条件的不同选择不同的扩散模式。在议程设置阶段,构建和拓展社会网络是社会组织推动政社合作型政策创新扩散议题开启的基本途径;在方案实施阶段,自身的专业能力是社会组织推动政社合作型政策创新扩散实施成功的重要前提。政府不是推动政策创新扩散的唯一力量,社会组织以一种“软性”的方式推动政策创新扩散,其推动的政策学习是政府治理能力现代化的重要途径。要更好地发挥和运用社会组织推动政策创新扩散及治理功能,需要提高社会组织的能力,提升地方治理及政策决策的开放性以及拓宽政社互动渠道。

Policy innovation and diffusion is an important way to improve national governance capacity,but the academic community generally pays attention to the policy innovation diffusion promoted by the government and officials,and lacks attention to the policy innovation diffusion promoted by social organizations.Based on the theory of policy process stages,this paper constructs an analytical framework of"agenda triggering-implementation participation".Taking the spread of Shenzhen civilian-river-manager system to Huizhou,Liuzhou,Nanning and Jinan as examples,this paper adopts embedded case study design to investigate how social organizations promote the diffusion of government-society cooperative policies innovation.According to the willingness to trigger and the degree of participation,there are four modes for social organizations to promote the diffusion of government-society cooperative policies innovation:Active action,enterprising assistance,positive re-sponse and"pushing the boat along the river".The different conditions of the policy subject in the area of diffusion make it applicable to different diffusion models.In the agenda setting stage,building and expanding social networks is the basic way for social organizations to promote the diffusion of government-society cooperative policies innovation;In the implementation stage of the plan,its professional ability is an important prerequisite for social organizations to promote the diffusion of government-society cooperative policies innovation.The government is not the only force to promote the diffusion of policy innovation.Social organizations promote the diffusion of policy innovation in a"soft"way.Promoting policy learning is an important way to modernize the government's governance ability.In order to better play and use social organizations to promote policy innovation diffusion and governance functions,it is necessary to improve the capacity of social organizations,improve the openness of local governance and policy decisions,and broaden the channels for government-society interaction.