县域基本公共服务均等化政策执行差异何以形成?——基于扎根理论的探索性分析

How do the Differences in the Implementation of Policies on Equalization of Basic Public Services in Counties Come into Being——An Exploratory Analysis Based on the Grounded Theory

县域政策执行是如期实现基本公共服务均等化政策目标的关键环节。扎根理论研究发现,县域执行主体的不同策略选择引发了均等化政策执行过程及其效能的差异,这表现为通过常态、运动、变通的执行策略达成了县域“总体均等化”标准,但不同策略下县域均等化的程度、水平呈现差异特征。建构理论模型并分析执行差异的形成机理:在均等化政策执行的准备与实施阶段,政策特质、政策压力、资源情景、行政管理体制机制影响了执行主体的策略选择。其中,常态执行实现兜底保障的主要原因是执行主体受到政策特质指挥、政策压力驱动、资源情景约束;运动执行带来资源悬浮的深层逻辑为政策特质与政策压力复合推动、政策压力与资源情景组合作用,而通过行政管理体制机制变革可以调适偏差;变通执行推动供需匹配的内在机理是政策特质触动、政策压力驱动、资源情景限制、行政管理体制机制过程调节。新发展阶段,为将基本公共服务均等化政策优势更好转化为政策效能,需注重发挥常态执行兜底优势、及时调整运动执行悬浮偏差、适当预留变通执行弹性空间。

The implementation of county policies is a key link in achieving the policy goal of equalizing basic public services as planned.The study by the grounded theory has found that the different strategic choices of county-level executive entities lead to differences in the process and effectiveness of the implementation of equalization policy.This is manifested as the different characteristics in the degree and level of equalization under different strategies,in spite of the achievement in the standard of overall equalization in counties through different execution strategies such as normalization,movement,and flexibility.We construct a theoretical model and analyze the formation mechanism:during the preparation and operation stages of policy implementation,characteristics,pressure,resource scenarios,and mechanisms of the administrative management system of the policy affect the behavioral choices of the entities.The main reason for the routine implementation to achieve full guarantee is that the executive entities are guided by policy characteristics,driven by policy pressure,and constrained by resource scenarios.The deep logic behind the suspension of resources brought about by dynamic implementation is the composite promotion of policy characteristics and policy pressure,and the combined effect of policy pressure and resource scenarios.Deviations can be adjusted through changes in the mechanisms of administrative system.The inherent mechanism of flexible implementation to promote the matching of supply and demand is the triggering of policy characteristics,the driving of policy pressure,the constraints of resource scenarios,and the adjustment of administrative systems and mechanisms.In the new stage of development,to better transform the policy advantages of equalizing basic public services into policy effectiveness,it is necessary to focus on giving full play to the advantages of routine implementation,timely adjusting the suspension deviation of dynamic implementation,and appropriately reserving the space for flexible implementation.