政策试验的议题属性与知识生产——基于城市土地使用权改革的案例分析

Issue Attribute and Knowledge Production of Policy Experimentation:The Case Study Based on the Reform of Urban Land-use Rights

政策试验既是增进知识分享和交流的重要途径,也是促进知识生产的一种组织机制。本文从议题复杂性的视角,提出政策试验的“议题属性—知识生产”分析框架,区分了政策试验的3种类型:政社合作型试验、权威倡导型试验、技术检验型试验。政社合作型试验引入社会学习机制,由地方政府与社会行动者合作开展试点,侧重于生产概念性知识;权威倡导型试验由高层决策者驱动,致力于生产基于新概念的结构性知识;而技术检验型试验授权专家组织实施,采用控制性实验方法来检验技术标准的有效性。城市土地使用权改革的三项案例研究发现,议题属性直接影响着政策试验的类型选择,三类政策试验之间具有密切的过程关联性,共同构成了完整的政策知识生产连续体。开展政策试验需要区分议题属性,选取合适的试验类型,有针对地促进政策知识的生产。

Policy experimentation is not only an important approach to enhance the sharing of policy knowledge,but also an organizational mechanism to promote knowledge production.From the perspective of the complexity of policy issues,this study proposes the framework of "issue attribute and knowledge production" for experimentation.It divides policy experimentation into three types,namely,government-society cooperation experimentation,authoritative advocacy experimentation and technocratic test experimentation.Government-society cooperation experimentation is carried out by local governments and social actors collaboratively,which introduces the social learning mechanism to produce conceptual knowledge.Authoritative advocacy experimentation is driven by high-level decision-makers,which is committed to developing structural knowledge based on new concepts.And technocratic test experimentation is organized by experts to test the effectiveness of new technical standards through controlled experiments.Based on the case study of three pilot projects organized in the reform of urban land-use rights,this study finds that the attribute of policy issues directly affects the selection of different types of policy experimentation.These three experimental types are closely related in terms of process and jointly constitute a complete continuum of policy knowledge production.To carry out policy experimentation,it is required to distinguish the attribute of policy issues,select appropriate experimental types,and promote the production of targeted policy knowledge.