县级政策转换与有效治理——对中国公共政策过程的反思

Policy Transformation and Effective Governance: Reflections on the Process of Public Policy in China

政策转换是政策制定与政策执行之间的中间环节,在中国公共政策过程中扮演着重要角色。文章指出,县一级的政策转换以基层治理体系为基础,能够结合基层多元的治理目标、社会需求与治理能力,优化国家政策与基层社会的契合度。近年来,上级政府开始逐步上收政策转换权,并试图通过建立政治化、精细化、高标准的指标体系来实现对政策的精准界定,提高政策执行效率。然而,顶格化的指标体系导致政策刚性化,并不断挤压县级政策转换空间,最终引发政策转换失灵。正是在这一过程中,自上而下的政策开始脱嵌于基层治理体系,使政策执行与基层治理陷入混乱。这表明,政策转换是制度化解决中国政策统一性与地方差异性矛盾的有效机制,同时关系到国家政策目标与基层治理秩序的达成。需要重视政策转换在政策过程中的重要性,并建立层级权力合理配置的政策转换体系。

Policy transformation is the intermediate link between policy formulation and policy implementation.It plays an important role in China’s hierarchical policy system.This paper points out that the policy transformation at the county level is based on the grassroots governance system,which can combine the diverse governance goals,social needs and governance capabilities of the grassroots to optimize the fit between national policies and grassroots society.In recent years,the higher level government has gradually taken control of the policy,and tried to establish a refined and high-standard index system to accurately define the policy and improve the implementation efficiency of the policy.As a result,the power of policy transformation in counties is constantly squeezed,which finally leads to the failure of policy transformation.It is in this process that policies begin to emerge from the grassroots governance system,hindering the realization of policy objectives and making grassroots governance more chaotic.This shows that policy transformation is not only the basis for the effective achievement of national governance goals,but also related to effective governance at the grass-roots level.It is necessary to pay attention to the importance of policy transformation and establish a policy transformation system for rational allocation of hierarchical power.