“中央出题-地方自选”:城市治理政策何以反制政策效能层层衰减

"Central Government Issues Policy and Local Governments Choose"——How to Avoid the Gradual Decline of Policy Implementation

近年来,以“中央出题、地方自选”的国家示范城市创建工作成为热潮,实现了中央政策效能在基层的充分发挥。研究表明,国家示范城市政策:(1)具有低模糊性、低冲突性与高弹性等政策属性,有利于减少地方政府政策执行的阻力;(2)提供了双重激励耦合地方政府的政策执行动机:一是为地方政府提供物质性激励;二是提高地方职能部门能动性、强化地方政府优化治理绩效的使命感。国家示范城市政策嵌入了中央对城市治理向标准化、精细化转型的意图,改变了国家政策执行的层级节制关系,激发了地方自觉,是中央阶段性、技巧性改善城市治理、规避政策效能减码的有效尝试。

Avoiding the gradual decline of policy implementation is a practical problem that remains to be solved in the academic and practical circles.In recent years,the creation of"national model cities"has become a new phenomenon of local governance.The central ministries and commissions have issued policies,and local governments below the provincial level have independently participated in,implemented and disseminated policies with high quality,realizing the full play of the effectiveness of the central policy at the grass-roots level.Through combing the 22 types of demonstration city policies launched by the central ministries and commissions from 2009 to 2020,the study found that the demonstration city policies have the policy attributes of low ambiguity,low conflict and high flexibility;At the same time,they provide"two-dimensional incentives"to couple the motivation of local government policy implementation,which not only ensures that local policy implementation can obtain external political,promotion or financial protection,but also pays attention to strengthening the internal perception of local government's power status,role and mission.The national model city policy,through the mode of"Central Government Issues Poilicy and Local Governments Choose",not only embeds the central government's intention to transform the city to standardized and refined governance,but also changes the general bureaucratic relationship of policy implementation,endows local governments with freedom in policy implementation,activates local consciousness,and is a successful case of eficient policy implementation shown in practice.Future research can focus on the vivid city creation practice,and excavate the bureaucratic relationship and government action logic under the background of the implementation of model city policies from an empirical perspective.