政策共同体如何推动基层试验上升为县域政策?——基于福建省屏南县“工料法”的多源流分析

How do Policy Communities Promote Street-Level Experiment to County Policy?--Multi-stream Analysis Based on"Employee Purchase Method"in Pingnan Fujian

将实践可行的基层试验上升为政策是试验成果制度化的实现形式,也是中国持续改革创新的动力源泉。本文以福建省屏南县“工料法”为例,探究政策共同体对推动基层试验上升为县域政策的关键作用,提出了“共识-框架-成果”的政策共同体分析框架。研究发现,在“工料法”这一乡土智慧“下情上达”的过程中,首先是偏好同源促成了政策共同体将政策注意力由“招投标”转向“工料法”凝聚议程共识,其次是政策共同体的内外部良性互动促成政策议程框架的建立,最后是“上下来去”的政策过程通过上级肯定和观念强化,巩固了政策共同体的成果,成果推动了基层试验上升为县域政策。本文对政策共同体的运作机制建构了一个本土化的解释性框架,同时为借助乡土智慧建成宜居宜业和美乡村提供了一个屏南“工料法”的实践方法论。本文的启示在于,县域作为国家治理体制的基石,通过县域政策创新的研究进一步打开政策共同体促成试验成果制度化的“黑箱”,有助于丰富以改革试验为底色的中国式现代化之底层逻辑。

Upgrading the practical street-level experiments to policies is the realization form of the institutionalization of experimental results,and it is also the power source of China's continuous reform and innovation.Taking the"Employee Purchase Method"in Pingnan county,Fujian Province as an example,this paper explores the key role of policy community in promoting street-level experiments to county policies,and puts forward a"Consensus-Framework-Results"policy process analysis framework.It is found that in the process of promoting the local wisdom of"Employee Purchase Method":Firstly the policy community has the homology of preference,which has prompted the policy community to shift its attention from"Bidding and Tendering"to"Employee Purchase Method';Secondly,the internal and external benign interaction of the policy community contributed to the establishment of the policy agenda framework;Finally,the policy process of"Up-Down Circle"consolidated the achievements of the policy community through the obtain affirmation of higher authority and concept strengthening,and the achievements promoted the street-level experiment to become a county policy.This paper constructs a localized explanatory framework for the operation mechanism of the policy community,and provides a practical methodology of Pingnan's"Employee Purchase Method"for livable and beautiful countryside with the help of local wisdom.The enlightenment of this paper is that the county is the cornerstone of the national governance system,and the research on county policy innovation will further open the"Black Box"for the policy community to institutionalize the experimental results,which will help to enrich the underlying logic of Chinese modernization with reform experiments as the background.