摘要
中国公共政策实施过程包括三部分:政策文本流变、职能部门政策实施行动和公众参与活动。与此同时,政策实施也包括政策流、过程流和资源流的三流合一过程。当政策文本不能转化为具体实施行动,以及政府职能部门与社会不能有机互动,政策目标达成度低,政策实施呈现为象征性执行,就出现政策实施中的"空传现象",简称"政策空传"。本文从利益视角、府际关系视角和政策背景视角展开对"地沟油"整治与餐厨废弃物管理政策的实施过程分析后认为,政策空传的原因有三个方面:一是地方政府是中央政府代理人的角色与科层结构中的层级节制原则之间的内在冲突,导致公共政策实施形式千差万别,且没有真正落地;二是政策目标缺乏逐级量化、政策工具短缺,尤其是科学技术缺失,造成自上而下的政策实施的形式主义严重;三是协调机制不足也导致了多个行为主体共同实施公共政策时合作不力,政策实施网络也因协调不畅而难以形成合力。而要根治公共政策空传现象关键,在于确定政策实施中不同层级政府的责任。
Normally, a full process of public policy implementation includes three parts: policy document flow,implementation action by public agency, and citizens’ participation. Meanwhile, implementation process can be regarded as a combination of policy stream, process stream and resource stream. When policy documents cannot be transformed into real action and government and society cannot interact well with each other, policy targets are poorly accomplished. In this case, policy implementation shows up as a fake implementation, or symbolic implementation. In China, such a symbolic policy implementation is named 'empty flow of policy text'.Focusing on the implementation process of the policies on the regulating the production and selling of 'drainage oil', this article tries to analyze the symbolic policy implementation in China. It argues that three main factors contributing to the symbolic policy implementation in China: first, the conflict between local government as the agent of of the central government and the principles of bureaucracy leads to all kinds of implementation forms and poor implementation; second, the lack of accurate measurements of policy goals at different levels of government and effective policy tools, especially the lack of advanced science and technology leads to the serious formalistic top-down policy implementation; third, the insufficient coordination mechanisms among different policy actors results in weak cooperation and loose policy network in policy implementation. Therefore, the key to eliminating symbolic policy implementation is to define accurately the responsibilities of governments at different levels in policy implementation.
出处
《公共行政评论》
CSSCI
2012年第3期59-85,180,共27页
Journal of Public Administration
基金
国家社科重大项目(10zd&009)
复旦大学985工程三期整体推进社科项目(2011SHKXZD013)
关键词
政策空传
政策流
过程流
资源流
Symbolic Policy Implementation
Policy Stream
Process Stream
Resources Stream
