府际结构下领导注意力的议题分配与优先:基于公开批示的分析

注意力成为政策过程研究的关键要素,领导注意力的分配与优先性表达是理解政策变迁与体制运作的新维度。论文通过构建中央-省-市级政府首长的批示文本数据库,比较了府际间领导注意力在政策议题上分配的稳定性和多样性,并检验了议题优先性在中国府际结构中的呈现。研究结果表明:核心议题作为领导注意力焦点对其他议题具有挤出效应即存在议题优先性,并且随着领导层级的降低,其挤出效应愈发显著;府际间领导注意力在议题分配上的稳定性、多样性分别与领导层级呈现出正相关性,这亦与政府职责分工体系特点深刻关联;政治周期变化对于领导注意力变迁具有显著的“间断效应”。论文探索了多层次主体的注意力比较研究,为解释中国体制运作中的“议题优先”及其运作提供了注意力层面的证据。

The Issue Allocation and Priority of Leadership Attention under an Inter-Governmental Structure: Based on Leaders’ s Instructions

Issues prioritization operates throughout China's political system.This paper focuses on the issue allocation and priority of leadership attention in China's inter-governmental structure.We examined the policy issues of inter-governmental differences,issue stability,issue diversity,and issue priority on leadership attention by examining the instruction text database for the heads of central-provincial-municipal governments.The results show the core issue was leadership attention which had a crowding out effect on other issues;this effect became more significant the farther down it went the government hierarchy.Organizational structure shaped the complexity of leadership attention allocation,and there was a positive correlation between issue stability and issue diversity of inter-governmental leadership attention distribution and government hierarchy.Changes brought by the political cycle had significant“punctuated-equilibrium effects”on the transition of leadership attention.This paper promotes the comparative study of multi-level subject attention,and provides evidence at the attention level for explaining“issue priority”in the operation of China's political system.