政策试验的议题情景与多重功能——基于相对集中行政许可权改革的考察  

Issue Scenarios and Multiple Functions of Policy Experiments——Taking the Reform of Relatively Centralized Power of Administrative License as an Example

作　　者：杨宏山[1] 郝思凯 YANG Hongshan;HAO Sikai(School of Public Administration and Policy,Renmin University of China,Beijing 100872,China)

机构地区：[1]中国人民大学公共管理学院,北京100872

出　　处：《探索》2024年第2期98-111,共14页Probe

基　　金：国家社会科学基金重大项目“中国特色政策试验与政府间学习机制研究”(19ZDA123),项目负责人:杨宏山。

摘　　要：政策试验是中国改革的常用话语叙事,各级领导人对政策创新的试验路径均给予肯定。政策试验通过局部地区的试点开展,构建议题学习网络,增进多主体互动,利用各方知识开展认知学习,从而推进政策创新与治理变革。从不确定性的视角,提出政策试验的“议题情景—功能定位”分析模型,区分政策试验的四种类型,即生成型试验、测试型试验、倡导型试验、拓展型试验,并分析不同试验类型的功能定位。生成型试验适用于深度不确定性的决策议题,政策干预的选项及价值具有不确定性,决策系统提出概念性质的愿景目标,传递出新信号,鼓励地方政府开展创新探索,将愿景目标转化为操作方案;测试型试验适用于政策干预的内部效度具有不确定性、决策系统已经确定的政策选项,通过局部试点进行评估学习;倡导型试验针对外部效度的不确定性,通过在更大范围内开展试验,从差异性中总结经验教训,进一步校准政策工具;拓展型试验针对内部和外部效度已经得到检验的政策工具,决策系统通过议题再建构,将新理念、新工具拓展到更广泛的应用场景。考察相对集中行政许可权的改革历程发现,相对集中行政许可权改革经历了地方创新、多方参与、扩大试点、议题再定位的演化历程,发挥了方案生成、效果检验、经验推广、治理变革等多重功能,这些功能互相衔接,共同构成了政策试验的功能图谱。在改革过程中,多方主体之间具有持续的互动学习,经由概念学习将模糊目标转化为创新方案,经由评估学习、示范学习、迭代学习,将地方探索的成功经验纳入国家政策。研究表明,政策议题的不确定性对试验模式的选择具有直接影响,政策试验的组织模式及功能定位在不同阶段具有差异性。Policy experiment is the common discourse narrative of China’s reform,from the center to locals,leaders of all levels positively endorse the experimental path of policy innovation.To promote policy innovation and governance transition,policy experiments are carried out through local piloting,constructing issue-learning networks,strengthening multi-actor interactions,and leveraging multiple sources for cogni-tive learning.From the perspective of uncertainty,the authors propose the“issue scenario-functional posi-tioning”framework for policy experiment,distinguishing four types of policy trials,namely,generative tri-al,testing trial,advocacy trial,and expansion trial,to analyze the functional positioning of different exper-iment types.Generative trials can be applied to deeply uncertain decision-making issues.Given the uncer-tainty of both the options and the value of the policy intervention,the decision-making system proposes conceptual visionary goals,sends new signals,and encourages local governments to conduct innovative ex-plorations to transform the visionary goals into operational programs.Testing trials,for their part,can be applied in cases of uncertainty about the policy intervention’s internal validity.The decision-making sys-tem learns by evaluation through localized pilots in scenarios with policy options already identified.Advoca-cy trials can be used for external validity uncertainty.By implementing trials on a wider scale,the decision-making system draws lessons from the differences and further calibrates the policy instruments.Expansion trials focus on scenarios in which both the internal and external validity of the policy instrument have been tested.Based on this,the decision-making system expands the new concepts and tools to a wider range of application scenarios through issue reconstruction.Examining the reform process of relatively centralized administrative license,it has experienced the evolution of local innovation,multi-actor participation,pilot expansion and issue reposition.The p

关 键 词：政策试验 议题情景 政策学习 行政审批 

分 类 号：D63[政治法律—政治学]