超越破旧立新:政策并行的实践样态与成因——基于多案例的类型分析

Beyond Breaking the Old and Making New Policies:Type Analysis of the Practice Patterns and Causes of Parallel Policy Based on Multiple Cases

政策并行现象普遍存在于我国政策实践中,但尚未得到系统关注与阐释。政策并行表现为新政策创立而老政策并未终止,因此出现新老两项或多项政策同时管理同一公共事务的状态。依据新老政策是否为替代关系、老政策是否被策略性延续两个标准,可将政策并行细分为过渡型、组合型、守旧型及重叠型等四种类型。政策并行兼具增量改革与组织冲突逻辑,蕴涵综合决策、执行偏差、职责交叉与部门越位等多维原因要素。该发现有助于从整体性和历时性角度,推进单项政策研究与政策间关系研究的对接,从中发现习焉不察的政策问题及其症结,并以小见大地勾画中国增量改革与非线性政策变迁的复杂逻辑,为从政策衔接、兼容与整合层面提高公共政策质量提供新的思路。

Parallel policy is a widespread phenomenon in policy practice, but it has not yet received systematic attention. Parallel policy refers to the creation of a new policy but the old policy has not been terminated, as a result of which two or more policies simultaneously regulate the same public affairs. Based on whether the new and old policies are a substitute relationship and whether the old policies are intentionally retained, the parallel policies can be divided into transitional, combined, conservative, and overlapping types. They have a dual logic of rational decision-making and organizational conflict, and contain multiple factors such as comprehensive decision-making, implementation deviation, overlapping responsibilities, and departmental offside. Research on parallel policy helps integrate researches on individual policies and the relationship between policies from a holistic and diachronic perspective, which can also discover policy problems and their cruxes that have not been observed, give a glimpse of the complexity of China’s incremental reform and nonlinear policy changes, and provide inspiration for improving the policy convergence, compatibility, and integration.