试点缘何“点”到为止?——管窥基层治理创新难于持续的结构性因素

Why does the Pilot Projects Stop?—A Restricted View of the Structural Factors that Make Grass Roots Governance Innovation Difficult to Sustain

基层治理创新因何持续?既有研究较多强调上级态度与政治风险、创新者意志力及其变化、制度化水平、舆论支持等保障性因素的影响。然则通过对J公办幼儿园委托管理试点进行案例分析,揭示该试点之所以难以实现稳健的可持续性发展,主要源于试点系层层指标压力下基层政府应急发起,缺乏创新规划与可调适性,纳入常规官僚制管理亦衍生财政责任迷失、变通弹性不足、缺失公众参与等问题。由此提示,基层治理创新不仅应重视外在的保障性因素,还需关注内在的结构性因素,诸如创新动机与规划、创新管理的可调适性与务实性、创新收益分配与风险共担机制、直接利害人参与及协作等,这些因素对实现可持续的高质量基层治理创新同样意义卓著。

Why does grassroots governance innovation continue?The existing studies emphasize the influence of supportive factors such as the attitude of superiors and political risks,the willpower of innovators and its changes,the level of institutionalization,and public opinion support.Through the case analysis of the entrusted management pilot of J public kindergarten,this paper reveals that the reason why the pilot is difficult to achieve stable and sustainable development is mainly due to the emergency initiation of the grass roots government under the pressure of indicators at all levels of the pilot department,the lack of innovative planning and adaptability,and the loss of financial responsibility,the lack of flexibility and the lack of public participation in the conventional bureaucratic management.Therefore,for grassroots governance innovation,we should not only pay attention to the supportive factors,but also pay attention to various structural factors affecting the quality of innovation,such as innovation motivation and planning,the adaptability and pragmatism of innovation management,the mechanism of innovation income distribution and risk sharing,the participation and cooperation of direct stakeholders,etc.These factors are also of great significance for achieving sustainable and high quality grassroots governance innovation.