“复杂政策”与国家治理--基于国家连片开发扶贫项目的讨论

The Complexity of Policy and National Governance:The Case of Poverty Alleviation in China

公共政策领域本身的特点决定了治理模式的选择。在治理目标具有综合性、技术路径清晰度低、环境差异敏感度高的"复杂政策"领域,向基层政府"授权"有利于提升治理的有效性,但也增加了其利用信息优势和自由裁量空间发生"道德风险"的可能。鉴于此,在"复杂政策"的治理领域中,中央政府在常规的目标设定与督查考核之外,通过出台纲领性、指导性的专项政策,以及扩大社区参与等多种控制手段来规训地方政府的偏差行为。"复杂政策"治理模式旨在建立"央—地"之间的协作机制,发挥好中央和地方"两个积极性",从而弥合中央政府对政策推进的总体控制与地方政府在行政实践中自由裁量权之间的张力。从实践绩效来看,该模式无疑是有益的探索,但有待于进一步的优化与完善。

The choice of governance structure is determined by the characteristics of the governed. In the complex policy, characterized by multi-purposes, a claim for flexibility,and sensibility to environmental divergence,is more efficient for empowering the lower-level government. The needs of the targeted group can be better responded to.At the same time, it may cause 'moral hazards ' and the behavior of the local government needs to be better guided and regulated. Besides the common practice of aim-setting and supervision,the central government promulgates policy guidelines to regulate the activities of local governments. Meanwhile, local governments are encouraged to 'translate'the policy guidelines into practical activities that respond to local needs. The collaboration between central and local governments are essential to bridging the gap between state control and local flexibility.