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“领导重视”并非官僚制运转的万能灵药，尤其当它遇上官僚制的软抵抗时，政策执行往往陷入阻滞。现有文献对从领导重视到官僚制积极运转，进而使得政策落地这一过程机制缺乏足够的关注。为探究上级领导的注意力与官僚制的张力问题，本文选择将其置于政策执行场域，对经典政策过程理论进行打碎与重构，建立起政策执行要素-阶段的二维分析框架。在经验层面，本文以X市学校体育设施对外开放政策的执行过程为例，从微观视角深入描绘了官僚制运转从梗阻到顺畅落地的全过程，呈现了不同政策“关键要素”在不同执行阶段的不同组合效果，从而揭示了从领导重视到政策落地的内在机制。案例研究结果表明，决策者注意力是驱动官僚制的必要条件而非充分条件，政策执行还受到问题界定、政策图景、制度性摩擦，特别是执行联盟资源等因素的影响，只有当官僚制内化认同领导重视事项时才会积极运转。而当遭遇官僚制的隐形抵制时，决策者可以运用多种资源策略驯服官僚制。本研究揭示的政策执行过程中官僚制对上级领导的反作用力，挑战了传统官僚的刻板印象，凸显了官僚组织的弹性空间，是官僚的自主性和人格化特征反制官僚组织的机械性的结果。
Abstract：“Leadership attention” is not a panacea for bureaucratic operations, especially when it encounters soft resistance from within the bureaucracy, often leading to stagnation in policy implementation. The existing literature pays insufficient attention to the mechanism that connects leadership focus to active bureaucratic operations and, ultimately, policy implementation. In order to explore the tensions between the attention of superior leaders and the operation of the bureaucracy, this paper looks at the issue of policy implementation. We deconstruct and reconstruct classical policy process theory and establish a two-dimensional analytical policy implementation elements-stage framework. Empirically, we examine the policy implementation process for the opening up of school sports facilities in X City as an example to describe the entire process of bureaucratic operations from obstruction to implementation based on a micro perspective, presenting different combinations of the “key elements” of various policies at different stages of the implementation process, thereby opening the black box between leadership attention and policy implementation. The results of the case study show that attention from the superior leadership is a necessary but insufficient condition to drive the bureaucracy; policy implementation is also affected by factors such as the definition of the problem, the policy landscape, institutional tensions, and especially executive coalition resources. The bureaucracy works well only when it internalizes the priorities of its leaders. When confronted with the bureaucracy's invisible resistance, policymakers can employ a variety of resource strategies to tame the bureaucracy. The study reveals the bureaucratic counterforces against superiors in the process of policy implementation. This finding challenges the stereotype of traditional bureaucracy, highlighting the elasticity of space in bureaucratic organization that results in bureaucratic autonomy to counteract the mechanical nature of a bureaucratic organization.
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(1)由于政策信念尤其是深层核心信念(Deep Core Beliefs)与政策核心信念(Policy Core Beliefs)多随社会经济环境等预先安排的变化发生改变,而本文主要从行政体系内部探究政策执行,政策信念可以通过种种中间因素的作用力渗透到行政体系内部的诸要素中,潜移默化地为政策执行助力,故在此不将其作为独立因素强调。
(2)尽管在多数情况下,负责政策执行任务的主体仅含行政官员这单一群体,但由于信念差异、部门利益等因素的存在,行政官员内部也会分化为不同的派别,这种心理和行为倾向带有明显差异,且各自具备组织协调能力的行政官员内部分化实际上可以被视为不同的执行联盟,因此本文依旧沿用倡导联盟中“联盟”一词,但是将原指来自不同系统的多方信念共同体的“倡导联盟”修改为“政策执行情境下的执行联盟”。
(3)访谈记录编码规则:字母表示访谈人员代码,字母后面前四位数字代表年份,后四位数字代表月份和具体日期,如20210603代表2021年6月3日。
基本信息:
中图分类号:D630;D63
引用信息:
[1]徐国冲,夏瑜.领导重视能否驱动官僚制运转——基于政策执行要素-阶段框架的案例研究[J].公共管理评论,2025,7(01):56-76.
基金信息:
国家社会科学基金重大项目“绩效管理导向下的中国政府成本体系研究”(项目批准号:20&ZD115)的资助
2025-01-24
2025-01-24
2025-01-24