府际关系视角下中国政策扩散的运作逻辑——以城市人才引进政策扩散为例

The Operational logic of China's Policy Diffusion from an Intergovernmental Relations Perspective——A Case Study of Urban Talent Attraction Policies

中央政府通过权威调控促进府际学习并推动政策扩散,但其趋同与趋异并存的政策扩散结果背后的运作逻辑尚未得到充分探讨。“行政集权—财政分权”的制度结构塑造了政策扩散的多重机制:在纵向上,中央政府整体性调控使各级地方政府对标对表,地方政策呈现趋同现象;在横向上,地方政府间的竞争关系使后发追随者基于“恐后”心理学习先进地区,政策在一定程度上趋同,而竞争取胜者为保持先发优势,通过深化政策创新,使得政策结果趋异。“制度结构—府际关系—扩散机制—扩散结果”四个环节形成了中国政策扩散的逻辑链条,多重扩散机制在府际关系塑造下并存且共同发挥作用。与西方政策扩散逻辑不同,中国政策扩散多重机制与异同并存的结果源于行政集权与财政分权并存的制度背景。

The central government promotes policy diffusion through authoritative and regulated intergovernmental learning.The operational logic behind the diffusion results of policy convergence and divergence has not been fully explored.The institutional structure of “centralized administration-fiscal decentralization” has shaped the multiple mechanisms of policy diffusion.Vertically,the central government's authoritative role in overall regulation leads local governments to benchmark each other,resulting in policy convergence at the local level.Horizontally,competition between local governments prompts latecomers to learn from advanced regions out of fear,contributing to some degree of policy convergence.Meanwhile,competition winners strive to maintain their advantage by deepening policy innovation,leading to policy divergence.The interplay of “institutional structure-intergovernmental relations-diffusion mechanisms-diffusion results” forms the logical chain of policy diffusion in China,where multiple diffusion mechanisms coexist and operate jointly.Unlike the Western logic of policy diffusion,China's coexistence of similarities and differences in policy diffusion results from the institutional context of concurrent administrative centralization and fiscal decentralization.