政策制定与执行之间的偏差何以产生——以地方政府对“网约车”的管理为例

How Does the Deviation Between Policy Making and Implementing Occur?——Taking Local Government Management of “Online Car-Hailing Service” as an Example

政策制定与执行之间存在偏差通常被认为是地方政府执行中央政策时的偏离或一线行政人员所拥有的自由裁量权等原因所造成。学界也有不少个案研究专门探讨了中央与地方政府在政策制定之中的关系,或分析一线行政人员在政策执行中的偏差现象。然而,当我们把政策制定和执行视为完整的过程来考察时,却发现当政策制定与政策执行的主体一致时,政策执行与政策文本之间的偏离不应被视为对立的表现,而是反映了地方政府政策意图的一个完整过程。为此,我们以地方"网约车"政策为例,测量并解释了全国33个大城市在"网约车"管理上政策文本与政策执行的偏差程度,指出地方政府在"网约车"管理上"严于制定,宽于执行"的表现,是地方政府为缓解地方治安综合治理与公共服务供给之间的冲突而有意为之的策略性行为。

Deviations between policy making and implementing are often attributed to either deviations from local government implementation of policies from the central government or discretionary powers of frontline executives. There are also many case studies in the academic circles that specifically discuss the relationship between the central and local governments in policy making, or analyze the deviations of frontline executives in policy implementing. However, when considering policy making and implementing as a whole process, the authors find that when policy making shares the same subject with policy implementation, the deviation between policy implementation and policy texts should not be seen as a manifestation of opposition. It is a complete process that reflects the intention of the local government policy. To this end, the present research takes the local "online car-hailing^^ policy as an example to measure and explain the degree of deviation between policy texts and policy implementing in "online car-hailing" management in 33 major cities across the country, pointing out that being strict about policy making and loose in implementing in "online car-hailing" management is an intentional strategic behavior by local governments to mitigate the conflict between local public security and public service provision.