政治多元化与利益整合: 基于印尼疫情防控政策的分析

Political Pluralism and Interest Integration:Analysis of Indonesia’s Epidemic Prevention and Control Policies

东南亚去集权化改革造成了政治权力多元化的局面,影响了国家的治理效能。印尼的利益整合机制对理解东南亚普遍面临的政治多元化困境具有重要意义。本文从新冠肺炎疫情防控这一“焦点事件”中的政策运作过程出发,探究当代印尼政治的多元化状况及其利益整合机制。面对疫情危机,印尼中央政府、地方政府与社会民众表达了不同的利益诉求与政策偏好。以政策偏好是否一致为标准,各权力中心之间的关系在印尼抗疫中呈现为4种类别。只有当“双分歧”关系无限接近“双一致”关系时,全国性抗疫政策才得以转变并顺利实施。在此期间,中央政府采取了以协商与说服为主、命令为辅的利益整合方式,形成了“渐进主义”的政策过程。但这也带来了治理成本高昂、政策执行弹性大、政治依赖度高的治理困境。由此来看,即使是佐科政府以来不断探索行政再集权化改革,但也应以高度的政治整合为基础,否则渐进改革也将变为激进的政治冲突。

The decentralization of Southeast Asian countries has created a situation of plural political power and affected national governance effectiveness in some countries.The Indonesia’s interest integration mechanism is of great significance for understanding the diversification dilemma faced by Southeast Asian countries.This essay tries to explore the plural situation of contemporary Indonesian politics and its interest integration mechanism from the policy operation process of dealing with the Covid-19 epidemic as a“focus event”.Faced with the epidemic crisis,the central government,local governments and the public expressed different interests and policy preferences.Taking the consistency of policy preferences as a standard,the relationship between different power centers manifested four categories in the anti-epidemic process.Only when the relationship of“double disagreement”turns to“double consensus”,the national anti-epidemic policy can be implemented smoothly.During this period,the central government adopted a way of integrating interests with consultation and persuasion as the main mechanism and supplemented by up-down orders,forming an incrementalism of policy process.However,it also creates governance dilemma of high governance cost,great flexibility in policy implementation and high political dependence.Therefore,even the administrative re-centralization reform that has been gradually explored since Jokowi’s government went on its course,it should be based on a high degree of political integration,otherwise,incremental reform will also turn to radical political conflicts.