基层试点政策议程何以确立?——对职务科技成果“混合所有制”改革的个案追踪

How is the grassroots pilot policy agenda established?——Case tracking of the"mixed ownership"reform of employee S&T achievements

公共政策试点中的政治动能是一个能够解释基层改革动因和能动性的学术表达。论文构建了基层自下而上试点政策议程确立的分析框架,为解构基层试点政策议程确立的动因与机制提供了综合分析视角。选取科技政策领域源于西南交通大学的职务科技成果“混合所有制”改革为对象,还原这一基层试点政策议程的确立过程、历史细节与特殊经验,从形成基层共识、进入高层视野、议程正式确立三个过程阶段出发,以不同阶段和层级的合法性建构为牵引,开展了试点政策议程确立中政治动能的作用机理分析。研究发现,试点中的政治动能以多种干预方式作用于基层政策能动性、注意力获取、联盟构建和终极合法性生成四个关键微观机制,驱动基层试点方案逐级突破合法性困境后进入国家政策议程。论文的理论贡献在于,一是在科技领域深化了基层政策试点过程中上下联动的动因研究,二是建构了公共政策视域下政治动能的理论解释框架及其与政治势能的对话框架。

The political momentum in the policy pilot is an academic expression that can explain the motivation and initiative of grassro-ots reform.The paper constructs an analytical framework for the establishment of grassroots pilot policy agendas from a bottom-up per-spective,providing a comprehensive analytical perspective for deconstructing the motivations and mechanisms behind the establishment of grassroots pilot policy agendas.Selecting the"mixed-ownership"reform of job related scientific and technological achievements o-riginating from Southwest Jiaotong University in the field of science and technology policy as the object,restoring the establishment process,historical details,and special experience of this grassroots pilot policy agenda,starting from three stages of forming grassroots consensus,entering high-level perspective,and formally establishing the agenda.With the construction of legitimacy at different sta-ges and levels as the traction,we conducted an analysis of the mechanism of political momentum in the establishment of pilot policy a-gendas.Research has found that the political momentum in the pilot program acts on the four key micro mechanisms of grassroots policy initiative,attention acquisition,alliance building,and ultimate legitimacy generation through various intervention methods,driving grassroots pilot programs to gradually break through the legitimacy dilemma and enter the national policy agenda.This article analyzes the establishment process of the grassroots pilot policy agenda from the perspective of the reform of ownership of scientific and techno-logical achievements,restores the internal mechanism of the role of political momentum in the public policy perspective,and explains how centralization and local vitality are integrated in the context of Chinese governance.Firstly,how is the political momentum genera-ted in the pilot program?The political momentum is based on grassroots policy initiative to form a series of proactive strategic respon-ses,breaking through the practical legitimacy of policies to reach local reform consensus,and opening the curtain on grassroots reform.Secondly,how can political momentum be accumulated in the pilot program?Grassroots political momentum continuously accumulates energy in a snowbal like manner through attention acquisition and alliance building,gradually gaining higher levels of attention and lar-ger alliances,in order to break through the legitimacy of policy morality and generate local cognitive legitimacy,laying the foundation for triggering the promotion of political potential.Finally,how does the political momentum in the pilot work?Political momentum gen-erates universal recognition of the legitimacy of policies by triggering political potential,ultimately establishing a pilot agenda at the na-tional level.It can be seen that the operation of political momentum is accompanied by the construction of policy legitimacy at different levels.Grassroots should fully understand the practical logic of high-level coordination and departmental interests,combine existing political potential with political momentum,and actively shape the legitimacy of multi-level pilot policy agendas.The"trigger boost"relationship between political momentum and political potential in the pilot scenario not only ensures the top-level planning and policy implementation of the central government for the"national chess game",but also ensures that local experience can be continuously ac-tivated.The theoretical contribution of the paper lies in:firstly,deepening the research on the motivation of the linkage between the upper and lower levels in the process of grassroots policy pilot in the field of science and technology;secondly,constructing a theoreti-cal explanation framework for political momentum from the perspective of public policy and a dialogue framework with political potential energy.