中国公共政策执行中的政治势能——基于近20年农村林改政策的分析

Political Potential Energy in the Implementation of Chinese Public Policy——An Analysis Based on the Forestry Reform Policy of the Last Two Decades

"政策势能"是对中国公共政策"高位推动"的学术表达,也是对发端于西方的公共政策理论的一个具有中国风格的学理性回应。基于对中国农村近20年林改政策的案例分析,研究发现公共政策发文单位的不同位阶即可展示出不同强弱的"政治势能",它是中国共产党核心理念的政治表达,国家部委常以此为触媒来推动政策落地。地方政府或执行单位能够识别出这些政策背后所具有的"政治势能",根据政策所蕴含的势能高低作出相应的执行策略调整。良性的公共政策落地应当包括政治势能和激励机制两者间的耦合度以及政治势能主体与机制的制度化。借助"政治势能",我们可以揭示某些公共政策执行力为何突然得以在某个时段集中增强的原因及其机制。政治势能是中国特色制度赋予政策执行的内在特征,可以展现中国公共政策执行者的政治逻辑。在新时代,理应重视政治势能的制度化,这包括"党的领导"的制度化、尊重地方的自主性、将高势能公共政策嵌入科层的常规政策体系执行之中,才能确保中国公共政策的良性落地,使之服务于中国的现代化建设。

“Policy potential energy”is an academic way of expressing the impetus given to Chinese public policy by top-level support,as well as a Chinese-style academic rejoinder to public policy theory of Western origin.Our case study of nearly twenty years of forestry reform policy in rural China has found that the level of the policy-issuing body affects the degree of potential political energy.As this energy is the political expression of the core ideas of the Communist Party of China,national ministries and commissions often employ it to catalyze policy implementation.Local governments or implementing bodies are able to identify the potential political force behind these policies and adjust their policy implementation strategies accordingly.Good public policy implementation should include the degree of coincidence between potential political force and the relevant incentives and between the institutionalization of potential political energy players and mechanisms.This concept enables us to reveal the reasons and mechanisms for the sudden concentration and strengthening of the execution of some public policy at a particular time.As an inherent feature bestowed on policy execution by institutions with Chinese characteristics,potential political energy can indicate the political logic of those who implement Chinese public policy.In the new era,we should pay attention to the institutionalization of potential political energy.This includes the institutionalization of Communist Party leadership,respect for local authorities’autonomy,and the embedment of public policy with a high level of potential energy into the routine implementation of hierarchical policy systems.Only in this way can China guarantee the effective implementation of public policy and enable it to serve the modernization of China.