中国政策结构的内在逻辑——以农村社会养老保险政策为例

The inherent Logic of China's Policy Structure——Taking Rural Social Endowment Insurance Policy as an Example

政策结构是政策系统要素之间相互关联与相互作用的组织方式,其作为影响政策运行的核心作用机制而主导着公共政策的制定过程。本文立足于政策结构中主体、行动和价值三种关键性的系统要素,以农村社会养老保险政策为例,将政策结构中的系统要素和农保政策变迁的历史过程整合起来加以考察,讨论了中国特色社会主义民主政治体制下政策结构的内在逻辑。本文研究发现,自新中国成立以来,中国政策结构先后经历了新中国成立初期中央权威的内输入模式、改革开放初期政府主导下的精英主义模式和新世纪以来多元共治的公共治理模式等三种模式。在对这些模式综合考察的基础上,本文揭示出中国特色社会主义民主政治体制下的政策结构贯穿着"调控型"的内在逻辑,它的主要特征表现在两个方面,一是权力配置上具有控权与赋权的双重属性,二是行为机制上表现为民主集中制原则下的政策学习。

Policy structure is the organization mode of correlative factors of a policy system.As the Key function mechanism that affects policy operation,it dominates the process of policy making.This article takes the rural social endowment insurance policy as an example,focuses on three key correlative factors of the policy structure,which includes policy subject,policy action and policy value.It analyzes the key factors of the policy structure and the historical change process of the rural social endowment insurance policy as a whole,and then discusses the inherent logic of the policy structure in the socialist democratic politics system with Chinese characteristics.The results show that,since 1949,China s policy structure has successively gone through three modes:interior-input mode of central authority in the early period of the founding of new China,elitism mode dominated by the government in the early stage of reform and opening up,and public governance mode of multiple subjects since the new century.By the comprehensive investigation of these modes,this article reveals that the policy structure in the socialist democratic politics system with Chinese characteristics runs through the regulation-type inherent logic,and its main features are demonstrated in two aspects.First,power allocation has dual attributes of power control and empowerment.Second,the behavior mechanism is policy learning under the principle of democratic centralism.