职能部门如何牵头制定跨部门政策?——基于A市预付式消费治理政策制定过程的分析  

How Can Functional Departments Take the Lead in Formulating Cross Departmental Policies?Analysis of the Process of Formulating Prepaid Consumption Governance Policies in City A

作　　者：姜修海 Xiuhai Jiang

机构地区：[1]华中师范大学政治学与国家治理研究院(中国农村研究院)

出　　处：《公共行政评论》2025年第1期46-66,197,共22页Journal of Public Administration

基　　金：中央高校基本科研业务费(优创项目)“以深化共同缔造推进基层治理体制机制创新为基层减负的理论基础与实践路径研究”(2024CXZZ127);广西哲学社会科学研究铸牢中华民族共同体意识专项课题“广西民族互嵌式易地搬迁社区铸牢中华民族共同体意识的长效机制研究”(ZL2024025)。

摘　　要：在当前政府运行体系中,部门越来越倾向于通过牵头制定跨部门政策来应对非常规任务的治理需求。这俨然成为我国政策制定体系中的一种重要模式。论文将“牵头制定”带入政策制定研究,在系统分析范式的基础上构建“任务环境(输入)—组织条件(中介)—制定过程(反应)—政策出台(输出)”理论模型,以此透视A市经商局牵头制定预付式消费治理政策的过程,希望藉此廓清“部门如何牵头制定跨部门政策”问题。研究发现,跨部门政策牵头制定是由环境输入、组织中介、行动反应和政策输出多个阶段构成的连锁过程。面对非常规任务环境输入的“原初压力”,地方政府会首先通过组织调整为跨部门协作提供中介条件,以明确部门间牵头与被牵头的关系。在此基础上,牵头部门正式开展跨部门政策牵头制定的行动过程,经过前后政策拟制与政策审议两个过程,最终实现跨部门政策的输出。论文拓展了系统分析范式在环境与系统不适配情境中的运用,初步回答了跨部门政策如何牵头制定的问题,有助于增进对政府组织面临非常规任务环境仍不失活力的理解。In the current government operation system,departments are increasingly inclined to take the lead in formulating cross departmental policies to address the governance needs of unconventional tasks,which has become an important model in Chinese policy formulation system.The paper introduces“leading formulation”into policy formulation research,and constructs a“task environment(input)-organizational conditions(intermediary)-formulation process(response)-policy introduction(output)”theoretical model based on the system analysis paradigm.This perspective examines the process of A Citys business bureau leading the formulation of prepaid consumption governance policies,hoping to clarify the issue of“how departments lead the formulation of cross departmental policies”.Research has found that cross departmental policy formulation is a multi-stage chain process consisting of environmental input,organizational mediation,action response,and policy output.Faced with the“initial pressure”of unconventional task environment input,local governments will first provide intermediary conditions for cross departmental collaboration through organizational adjustments to clarify the relationship between leading and being led between departments.On this basis,the leading department officially carries out the action process of leading the formulation of cross departmental policies.After two processes of policy formulation and policy review,the output of cross departmental policies is ultimately achieved.The paper expands the application of system analysis paradigm in the context of environmental and system mismatch,and preliminarily answers the question of how cross departmental policies are led in formulating,which helps to enhance the understanding of how government organizations still remain dynamic in the face of unconventional task environments.

关 键 词：政府职能部门 牵头制定 跨部门政策 系统分析 

分 类 号：D63[政治法律—政治学]