基于政策合法性视角的公共政策有效落地分析——以设施农业政策在优成农场的落地为例

The Analysis of Effective Implementation of Public Policy from the Perspective of Policy Legitimacy:The Example of Implementation of Facility Agriculture Policy in Youcheng Farm

强化政策合法性是政策有效落地和可持续发展的基础。然而,学界尚未将政策合法性纳入政策执行研究范畴。基于政策范式变革,本文建构了以输入合法性—过程合法性—输出合法性为内核的分析框架,厘清了政策变革过程和政策合法性扩散过程及其交互效应,拓展了传统的政策执行和合法性建构理论。理论分析显示,在公共治理时代,公共政策有效落地的关键在于全过程合法性建构和维护。个案研究显示,在设施农业政策落地过程中,全过程合法性建构的虚化导致了政策偏差;全过程合法性建构存在输入合法性重心失衡、过程合法性消解、输出合法性利益主导等问题。基于此,要促进公共政策有效落地,需要推动公共政策思维从管理向治理转型,建构贯穿于公共政策全过程的合法性;需要推动基层政府政策角色转型,赋予利益相关者以更多合法性;需要推动基于利益基础的合法性建构方式向基于规范基础的合法性建构方式转型。

Strengthening policy legitimacy is the foundation of effective implementation and sustainable development of policies.However,little research can be found from the perspective of policy legitimacy.Based on a transformation from policy management paradigm to policy governance paradigm,this article constructs an analytical framework with the core elements of"input legitimacy-process legitimacy-output legitimacy".The framework clarifies the process of policy change,the diffusion of policy legitimacy and their interaction effects,expanding the traditional theory of policy implementation and legitimacy construction.The theoretical analysis shows that in the era of public governance,the key to the effective implementation of public policies lies in the construction and maintenance of the legitimacy throughout the whole process.The case study shows that,during the implementation process of facility agriculture policy,the process of policy legitimacy construction can lead to policy deviation.Problems can be found,such as the imbalance in the gravity of input legitimacy,the dissolution of process legitimacy,and the interest dominance of output legitimacy.To promote the effective implementation of public policies,we need to promote the transformation of public policy thinking from policy management to policy governance,building legitimacy throughout the entire process of public policies.Then,we need to promote the transformation of policy roles played by the grassroots governments,and give more legitimacy to stakeholders.Finally,we need to promote the transformation of legitimacy construction from interest-based to norm-based one.