非决策能力下基层政府回应行为的特征、模式及机制

The Characteristics,Patterns and Mechanisms of Response Behaviors of Grassroots Governments under Non-decision-making Capacity

政府回应具备合法性与有效性的双重属性,是政民互动与基层治理的复合体现。“非决策能力”指权力主体在决策之前对议程设定、利益挑战和潜在风险进行操控与引导的能力。当面对民众提出的相关诉求与需求时,权力主体通过施加影响,有能力将特定议题置于决策讨论之中或排除在决策范围之外,以达到规避风险、降低成本、摆平理顺的目的。非决策能力受到自上而下政治压力、自下而上群众监督与内外环境自主空间的综合影响。非决策能力作用下,基层政府回应行为形塑出权责失衡规避风险、利益计算的成本收益和压力分解的摆平理顺特征。根据非决策能力强势与弱势的不同状态,基层政府灵活选择冷漠型无视、程序型答复、适度型协商、事务型沟通等回应行为。非决策能力影响因素、基层政府回应行为特征与非决策能力对应的回应类型共同构成基层政府回应行为选择机制。

Government response has the dual attributes of legitimacy and effectiveness,and is a composite of government-public interaction and grass-roots governance."Non-decision-making capacity"refers to the ability of a power subject to manipulate and guide agenda-setting,interest challenges and potential risks before making decisions.When confronted with the demands and needs of the people,the power subject has the ability to place a particular issue in the decision-making discussion or exclude it from the scope of decision-making by exerting influence,so as to achieve the purpose of risk avoidance,cost reduction,and rationalisation.Non-decision-making ability is influenced by the combination of top-down political pressure,botom-up public supervision,and autonomous space in the internal and external environments.Under the effect of non-decision-making capacity,the response behavior of the grassroots government is shaped by the characteristics of risk avoidance through the imbalance of power and responsibility,cost-benefit through the calculation of interests,and smoothness through the decomposition of pressure.According to the different states of non-decision-making capacity,the grassroots government flexibly chooses the response behaviors of indifference,procedural reply,moderate negotiation,and transactional communication between the strong and the weak.The influencing factors of non-decision-making capacity,the characteristics of grass-roots government's response behavior and the response types corresponding to non-decision-making capacity together constitute the mechanism of grass-roots government's choice of response behavior.