央地关系视阈下的软政策执行——基于成都市L区土地增减挂钩试点政策的实践分析

Soft Policy Implementation under the Perspective of Central and Local Goverments' Relationship——Based on the Increase and Decrease Connection of Urban and Rural Construction Land Policy Practice in L District,Chengdu

文章主要从央地关系的视角来探讨政策执行结果与政策目标发生偏差的机制性根源。通过案例分析,指出政策运行的结果与政策本身的诉求相比,既有偏差,也有意外的惊喜。这些差异性结果的产生一方面是由于当前以指标考核为标准的政策执行体系导致地方政府只对指标负责,而不对事实本身负责,但指标本身又无法穷尽问题发生的可能性;另一方面是由于地方政府有其自身的目标序列,这一序列与中央要求的匹配程度将直接决定政策实践的好坏。这些因素都是在当前的政策执行体系中无法消弭的缺陷,导致公共政策执行具有相当大的弹性空间,政策实践的结果也具有不可预期性,呈现出"软政策执行"特征。这一特征摆脱了旧有的关于央地之间始终处于"收死放乱"循环的成见,还原了政策执行偏差悖论的客观存在,有效地解释了政策执行偏差的根本原因。

The objective of this paper is to explore the fundamental mechnism of the differences in policy implementation results and policy objectives under the the perspective of central and local goverments' relationship.We study a case study,about the interaction between the central and local,and the Increase and Decrease Connection of Urban and Rural Construction Land Policy's practice process in L District,Chengdu.Based on the case study,this analysis find that,comparing with the policy's original intent,the operation results include both good news and bad news.On the one hand,the generation of the difference results can be attributed to the indicator assessment standard in the current policy implementation system,which lead the local government is only responsible for the indicators,rather than the facts.However,the indicators themselves can never forsee that unexpected problems.On the other hand,the local government has its own target sequence,and the matching degree between the local sequence and the central requirements would directly determine the result of the policy operation.Both of those defects can not be able to eliminate in the current policy operation system,which lead to the considerable flexibility space and the unpredictable results.Thus,the current policy operation system shows the characteristic of 'soft policy implementation'.Through the case study,this article get rid of the prejudice of 'received on death and disorder' between the central and local government;restored the objective existence of the policy implementation deviation paradox;and explained the fundemantal causes of the deviation of policy implementation.Both for theoretical researchers and practitioners,the emergence of such a result have helped to re-examine the deeper governance system,such as the rational limits of the target responsibility system.