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现有政策回应性研究多聚焦高级官员,忽视了作为“一线回应主体”的基层公务员群体。通过引入建言行为,本研究将基层公务员政策回应性界定为“在政策建言中考虑公众意见的倾向”。面向3501名基层公务员的列举实验显示,近半数基层公务员选择在政策建言中考虑公众诉求,表现出政策回应性。基层公务员的建言行为发挥着将“公众语言”转换为“政策语言”的“桥梁”作用,有助于解决政策制定中的信息不对称问题。此外,本研究立足压力型体制情境,考察了自上而下的领导指示压力和自下而上的公众投诉压力对基层公务员政策回应性的影响。基于贝叶斯统计的多变量分析结果显示,领导指示压力对基层公务员政策回应性具有显著正向影响,而公众投诉压力只有在领导指示压力较低时才可能强化基层公务员政策回应性。这表明科层压力是基层公务员政策回应性的核心动力源。
Abstract：Street-level bureaucrats' policy voice behavior connects public demands with policymaking,yet existing theories of policy responsiveness fail to explain this prevalent phenomenon.Traditional responsiveness research primarily examines the opinion-policy nexus between citizens and politicians,overlooking the role of the bureaucracy.Information experiences attenuation during bottom-up transmission within hierarchical organizations.The efficacy of information flow from frontline levels fundamentally determines the operational efficacy of the entire governance system.Although lacking formal authority to initiate or revise policies,street-level bureaucrats serve as frontline responsive agents.Their voice behavior functions as a bridge translating "public discourse" into "policy language," mitigating information asymmetry in policymaking.This study conceptualizes street-level bureaucratic policy responsiveness as the tendency to incorporate public opinion into policy recommendations.A list experiment involving 3501 street-level bureaucrats revealed that nearly half incorporate public opinion in their policy advice,demonstrating policy responsiveness.This conceptualization enriches policy responsiveness theory by adding the "policy voicer " role to the bureaucratic framework,expanding responsive actors beyond politicians,senior officials,or holistic governments to include street-level bureaucrats.Furthermore,this study examines how top-down leadership pressure and bottom-up public complaint pressure within China's pressure-based governance system affect street-level b ureaucratic policy responsiveness.Bayesian multivariate probit modeling indicates leadership pressure exerts significantly positive effects,whereas public complaint pressure only enhances responsiveness when leadership pressure is diminished.It suggests bureaucratic pressure constitutes the core driver of street-level policy responsiveness.This study reveals a dual relationship between public opinion and bureaucracy under pressure-based governance,manifesting as both alignment and tension.On the one hand,the responsiveness pathway reflects alignment.Public opinion provides essential information for higher-level governments to understand grassroots governance realities,thereby gaining leadership attention.Moreover,tiered governmental systems demonstrate both institutional requirements and consensus for responding to public opinion.On the other hand,the competing influences of top-down versus bottom-up pressures reveal tension.The pressure-based governance system enables superior governments to effectively reorient subordinate agencies' attention allocation through administrative pressure.However,once public opinion enters the bureaucratic system,responsiveness becomes subject to jurisdictional accountability pressures.This institutional arrangement risks reinforcing frontline responsiveness to mechanistic top-down compliance rather than substantive engagement with public opinion itself.When these pressures compete for bureaucratic prioritization,bottom-up public pressure demonstrably occupies a disadvantaged position.
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(1) 2023年,本研究团队在西部W市政务服务大厅、D市城市运行中心等部门开展政府创新调研时,发现基层公务员的建言行为能有效推动政策回应。后续多次调研证实,这一现象具有一定普遍性。
(1) N2025071703表示2025年7月17日访谈的第3位受访者的访谈记录,下同。
基本信息:
中图分类号:D630.3;D63
引用信息:
[1]刘遥,韩啸,刘晨晖.科层视角下的政策回应性:面向基层公务员的列举实验[J].公共管理评论().
基金信息:
国家社会科学基金青年项目“数字化背景下部门协同对地方政府有效回应的影响研究”(项目批准号:22CGL066)的资助
2026-07-28
2026-07-28
2026-07-28