从常态到应急态过程中的学习机制——基于口岸海关疫情防控政策的案例分析

Learning Mechanism in the Transferring from Normal to Emergency State——Case Analysis Based on Epidemic Prevention and Control Policies of Customs at Ports

政策系统面对外部环境的信息输入通常能够做出的及时反馈和学习,其应急响应能力短时间内可以快速提升。新冠肺炎疫情在全球大规模暴发,我国政策系统在经历了初期短暂不协调响应后,逐步控制疫情,全国疫情防控工作快速进入常态化阶段。这一成绩既得益于政策系统自上而下的强大执行能力,也反映出政策主体在高度不确定性过程中的快速学习能力。本文选取位于疫情防控核心之一的首都机场海关作为个案,参与式观察与深度访谈支持过程跟踪,探索疫情防控政策在执行过程中如何发生学习并做出调整。以政策主体和信息来源两个变量为基础,本文梳理出政策执行中学习的四种类型。研究发现,以疫情防控领导小组为代表的中央化决策机制压缩了从中央到地方的执行链。同时,在应急态下,政策参与主体能动性显著增强且系统信息流通加速。西方学者认为,缺乏外部竞争和参与决策的机会有限会导致信息反馈环节不顺畅,容易导致政策冲突累积到危险水平。本文发现,中国政策系统中的学习机制能够很好地调适政策执行过程中的不适,在应急态下这一结论更为明显。

Policy systems are usually able to make timely feedback and learn from information input,and the capacity of emergency response can be rapidly improved in a short period of time.After a brief initial uncoordinated response to the massive global outbreak of COVID-19,China’s policy system has gradually brought the epidemic under control,and the national epidemic prevention and control work has returned the normalization.This improvement not only benefits from the strong top-down execution ability of the policy system but also reflects the learning ability of policy actors in the face of high uncertainty.In this paper,the Customs Office of Capital Airport in Beijing,one of the centers of epidemic prevention and control,was selected as a case to explore how to learn and adjust epidemic prevention and control policies in the implementation process through participatory observation and in-depth interview method.Drawing on two variables of policy actor and information input,this paper categorizes four types of learning in policy implementation.It finds that the centralized decision-making mechanism represented by the leading group for epidemic prevention and control shorted the information chain from central to local.At the same time,the dynamic of policy participants is significantly enhanced in emergency management,and the information flow is accelerated.Previous scholars believe that the lack of external competition and the limited access to decision-making will lead to poor information flow,which will easily lead to the accumulation of policy conflicts to a dangerous level.This paper finds that the learning mechanism in China’s policy system can well adjust the policy implementation process,especially in emergency management.