「惠臺爭先賽」：大陸惠臺政策擴散之時空演進與路徑

'Competing for the Lead of Preferential Policy Innovation'': The Evolution Preferential Policies of Mainland China for Taiwan from the Perspective of Policy Diffusion

惠臺政策乃是大陸促進海峽兩岸融合發展的重要政策工具，其各級地方政府採納和落實惠臺政策的程度對該政策能否發揮應有的功能具有重要影響。本文基於政策創新擴散的理論視角，運用政策文本計量和空間資訊視覺化分析方法，對1988～2019年154份惠臺政策文本之擴散廣度、速度、強度和方向進行實證分析。而基於實證分析，可以較為清晰地發現中國大陸惠臺政策創新擴散迴圈過程是由各地方政府「惠臺爭先賽」推動的，而這一爭先賽機制則是中國大陸在對臺工作上特有的「反獨促統」政策導向邏輯和增進地方發展的經濟導向邏輯共同作用的結果。因此，研究結論為：第一，政策在擴散的廣度、速度和強度上顯著增強。第二，政策擴散的方向在省級政府和省級以下地方政府層面出現差異。第三，「頂層設計」在惠臺政策制定過程中扮演著越來越重要的角色。

The preferential policies for Taiwan are an important policy tool for mainland China to promote the integration and development of the two sides of the Taiwan Strait. The extent to which local governments at all levels adopt and implement the preferential policies has an important impact on whether the policies can play its due role. Based on the theoretical perspective of policy innovation diffusion, this paper uses the bibliometrics and the spatial visualization to empirically analyze the breadth, speed, intensity, and direction of the diffusion of preferential policies for Taiwan based on 154 policy texts from 1988~2019. It is clear that the ''Competing for the Lead of Preferential Policy Innovation'' could play a core role, which promote the cyclic process of policy innovation and diffusion to preferential policy, for Taiwan in Mainland China under the empirical analysis. It is also important to note that this competition originates from the specific logic on Taiwan-related work of Mainland China. This logic integrates the logic of policy orientation on the ''struggle against the independence of Taiwan and promoting the peaceful reunification'' with the logic of economic orientation on the local development of economy. The main findings and conclusions are as follow: First, preferential policies of local governments in mainland China for Taiwan have a significantly increasing trend in terms of the scope, speed, and intensity of policy diffusion among local governments in mainland China. Second, there are differences in the directions of policy diffusion between the provincial government and the local governments below the provincial level. Third, the ''top-level design'' of the central government plays an important, yet gradual, role in the preferential policy-making.