中央-地方互动与“十一五”节能目标责任考核政策的制定过程分析

Analysis on Policy-making Process of China's Energy-saving Performance Assessment Institution——Taking a Perspective of Central-local Interaction

节能目标责任考核政策是我国"十一五"期间用以保障实现单位国内生产总值能源消耗降低20%这一约束性指标的重要政策,本文从中央-地方互动视角研究该政策的制定过程。研究发现,节能目标责任考核政策的制定过程呈现出"中央政府提出方针——地方政府进行创新性政策实践——中央政府肯定创新并颁布新政策——地方政府进行政策复制"的中央-地方互动特征,具有地方政策创新和自上而下政策复制相结合的特点。源自省级政府的政策实践是我国节能目标责任考核政策建立的主要学习源,为中央政府的政策出台提供了参照与经验,加速了中国节能考核政策的发展。但这些作为政策备选项的地方实践,总体上比较单一,并在中央节能目标责任考核政策出台后迅速进行了复制式修订。此外,节能目标责任考核政策的地方创新性实践主要发生在省级政府层面,地市级政府和更低层次的政府更多起到的是政策执行的作用。本文从动力机制的角度对此现象进行了初步解释。

China's energy-saving policy is one of the most important public policy, which is developed by the central government during the 11th Five-year Plan. And the performance assessment is the core that making local government implement the energy-saving policy strictly. This paper analyzes the policy-making process of China's energy-saving performance assessment institution during the period of the 11th Five-year Plan. The Central-Local Interaction Approach (CLIA) is important to understand China's policy-making process. This paper analyzes the policy-making process of China's energy-saving performance assessment institution by taking a perspective of central-local interaction. The research finds that the policy-making process of China's energy-saving performance assessment institution presents such a feature 'central government presenting guidelines-local policy experimentation under central guidance -central government affirming the local innovation and promulgating the new policy -local governments making policy in accordance with the central policy', with the characteristics of combining top-down policy diffusion with local policy innovation. The incentive mechanisms of the policy innovation between economy and public affairs are essentially different from each other. This paper can help us understand the theory of China's policy-making process.