公共政策非目标效果何以产生——基于环境政策外溢的质性研究  

Why Effect beyond Policy Objectives Produced——A Qualitative Study Based on Environmental Policy Spillovers

作　　者：孙峰 Sun Feng(School of Humanities,Southeast University,Nanjing,211189,China)

机构地区：[1]东南大学人文学院,南京211189

出　　处：《公共管理学报》2025年第1期50-62,171,共14页Journal of Public Management

基　　金：国家社会科学基金青年项目(20CZZ023);东南大学“至善青年学者”支持计划。

摘　　要：政策外溢是揭示政策对非目标对象影响的前沿议题,具有强烈的现实性和极富变化的差异性。在整体性治理和决策系统化趋势下,政策非目标效果研究成为现实需求紧迫而理论匮乏、滞后的议题。既往文献多关注单项政策外溢结果而忽视其过程本身,使得政策非目标效果外溢模式、驱动因素、产生机理等基础性规律有待廓清。本文厘定了政策外溢内涵,基于环境政策的多案例分析,发现政策非目标效果外溢存在连锁递进式纵向演进、“滚雪球”式良性循环、依存共生式相互引发三种模式。本文基于质性分析建构出契合中国国情的政策外溢“统合-差异”机理模型,发现中国政策外溢由利益、信任、创新等“统合”要素激发与维持,并在强制、引导和互动的行动逻辑塑造下出现差异化表征。本文对丰富政策外溢基础理论、预防决策系统性风险、推动政策统筹制定和全面评估等有所裨益。This study aims to examine the phenomenon of policy spillover,which refers to the unintended impacts that policies may have on areas not directly targeted by their original objectives.In particular,the research addressing the increasing need to understand how policies affect non-target areas in the context of holistic governance and systematic decision-making.To achieve this,the paper adopts a qualitative methodology,employing a multi-case analysis of environmental policies in China.Through this approach,the study explores the processes and mechanisms of policy spillovers,constructing a conceptual framework to illustrate different modes of spillover and their evolution.The findings of the research identify three distinct spillover modes:Vertical evolution,virtuous cycle,and mutual initiation.A proposed"integration-difference"mechanism model shows that policy spillovers in China are driven by integrative elements such as interests,trust,and innovation.These elements produce varied outcomes,including coercion,guidance,and interactive actions.Importantly,the study emphasizes that policy spillovers are not simply unintended byproducts but are shaped by systematic factors inherent in the policy-making process.Despite focusing on China's environmental policies,the study's findings offer broader implications for comparative research in other policy areas or regions.Future studies could investigate how the"integration-difference"model applies to different contexts,such as multi-policy settings or other sectors.On a practical level,the study provides valuable insights for policymakers,stressing the need to anticipate and manage policy spillovers to avoid systemic risks.It also highlights the importance of policy coordination and comprehensive evaluations that go beyond the immediate objectives of a policy.This research contributes to the field of public policy analysis by shifting attention from the outcomes to the processes of policy spillover.The development of the integrative mechanism model offers a new perspective on

关 键 词：政策外溢 非目标效果 外溢模式 “统合-差异”机理 政策评估 

分 类 号：D035[政治法律—政治学]