多重委托代理关系下政策工具的选择逻辑——基于1069份突发性公共卫生事件的政策文本分析

The Selection Logic of Policy Tools under Multiple Principal-agent Relationships——Analysis of 1,069 Policy Texts on Public Health Emergencies

面对突发的公共卫生事件,中国抗击新冠肺炎疫情的斗争取得重大战略性成果,那么中国取得成功的密码何在?本文从政策工具选择的视角来剖析国家治理,探究政府是如何选择政策工具来实现相关主体的集体行动。笔者对1069篇疫情防控政策进行了文本分析,研究发现,在上下级政府、政府与民众、政府与社会间,基于科层、服务和知识三重逻辑的委托代理关系塑造,政府会选择相匹配的行政型、引导型和支持型工具来整合各方力量。政府选择行政型工具来统一政府系统内部的行动、选择引导型工具将民众与政府的疫情防控思想与行动统一到一个方向、选择支持型工具让社会力量发挥专业优势助力疫情治理。在理论上发现,国家治理成为政策工具选择的第五种路径;几类工具组合使用体现了整合性特征,在公共卫生应急事件治理活动中,形成了整合治理的模式,通过整合治理集中力量办大事,将政府、社会、民众团结到一起,实现疫情治理的集体行动。

In the face of public health emergencies,China has basically achieved success in the control of COVID-19.What is the code of China’s success? This paper makes a textual analysis of 1069 epidemic prevention and control policies,and finds that under the principal-agent relationship between the superior and subordinate governments,the government and the public,the government and the society,and based on the triple logic of bureaucracy,service and knowledge,the government will choose the corresponding administrative,guiding and supportive tools to integrate the forces of all actors.The government chooses the administrative tool to unify the actions within the government system,the guided tool to unify the thoughts and actions of the public and the government in the prevention and control of the epidemic,and the supportive tool to enable the social forces to give play to their professional advantages to help the epidemic control.Theoretically,national governance becomes the fifth approach about the choice of policy tools.The combination of several kinds of tools reflects the characteristics of integration,in the public health emergency activities,the mode of integration governance has been formed.Through integration governance,the government,the society and the public are united to accomplish great things,and the collective action of epidemic control is realized.