政策实施成本与上下级政府讨价还价的发生机制——基于四东县休禁牧案例的分析

讨价还价是中国上下级政府互动关系中很重要的一种形式。本文详细记述了四东县草原休禁牧政策实施过程中上下级政府的多轮讨价还价，县政府制定政策，政策严格落实导致政府与民众的冲突频发，乡镇政府以冲突为策略与县政府讨价还价，最终获得了相对宽松的执行空间。本文使用实施成本分析框架解释了讨价还价行为的发生机制，执行过程成本、上级施加成本、民众施加成本高昂，致使乡镇政府只能选择与上级讨价还价。随着社会冲突的加剧，乡镇政府的讨价还价能力相对提高，使得双方的协议点从严格执行端向宽松执行端移动。执行无僵局、协议点左右摆动、短期均衡与讨价还价的交替发生是政策执行中上下级政府讨价还价的基本特征。

Policy Implement Cost and Occurring Mechanism of Bargaining among the Chinese Governmental Hierarchy: Based on Analysis Example of Prohibition of Grazing in Sidong County

Bargaining is a significant form of interaction for the Chinese government. Therefore the mechanism of bargaining is suggested as a representative operational model to understand the behaviors of local governments in the hierarchical system of government. The paper describes in detail several rounds of bargaining between superior and subordinate government officials in the process of implementing the prohibition of grazing in Sidong County. The policy was made at the county level. Township-level governments choose to bargain with their superior due to the difficulty of implementation in the early stages,and then failed. Strict implementation led to frequent conflicts between local government and peasants. The township-level instantly turned to bargaining with the county-level government,and used a confrontational strategy to successfully obtain relatively more freedom for implementation. From a theoretical perspective,this paper uses the analysis framework for implementation costa to illustrate the functioning mechanism of bargaining behavior. The different combinations of implementation costs cause township-level governments to choose or adjust to different methods. The high cost of implementation processes leave township level government to use bargaining as the only reasonable method of implementation. Subordinate governments choose bargaining again when facing strict implementation orders from superiors,and difficult implementation conditions from the public. Bargaining is also their only choice when they cannot achieve the target,although they seek to implement policies to the utmost extent. The process of bargaining indicates that,township level governments improve bargaining ability relative to strict requirements for implementation of policy and intensifying social conflicts. The essential features of bargaining are:no deadlock implementation,wagging agreement point,alternative occurrence between short-run equilibrium and bargaining in policy implementation,and bargaining among the Chinese governmental hierarchy. From the institutional point of view,the implementation of new policies create opportunities for bargaining,and makes easier bargaining between superior and subordinate governments.