交互式统筹决策:中国公共政策制定模式的新变化——基于“证照分离”改革的案例研究

Interactive-Coordinated Decision Making:New Changes in China’s Model of Policy Making

党的十八大以来,在一些重大经济社会政策制定中,发挥主导作用的行为主体呈现出由国家部委向全局性行政部门转变的新变化。本文通过构建“交互式统筹决策”模型,并结合对“证照分离”改革过程的深度调查,描述和分析这一结构性变化带来的决策新趋势。研究表明,交互式统筹决策呼应建立国内统一大市场的宏观需求,通过转换政策制定主体、设定互动程序,增强中央政府、国家部委、地方政府间的横纵交互,在官僚体制内实现了更大范围、更长链条的决策统筹。加强政策统筹,看似决策权上收中央,实则有效提升了特定政策领域地方政府对部委的谈判能力,央地互动显现出“全局—条—块”关系的新型互动模式,这亦可能成为中央加强改革系统集成、推动部门协同高效的一种政府决策新趋势。

Since the 18th National Congress of the CCP,there has been a new shift from national ministries to super administrative departments as the leading actors in some major economic and social policy making.This study reveals such structural transition by constructing an“Interactive-Coordinated Decision Making”(ICDM)model,based on an in-depth investigation of“separation of operating permits and business licenses”reform.The results demonstrate that ICDM was designed for establishing a unified domestic market.By changing the main body of policy making,setting interactive procedures,and promoting the efficient interactions between the central government,national ministries,and local governments,ICDM has achieved a large-scale and long-chaining decision-making model within the bureaucratic system.Strengthening policy coordination,which seems that decision-making power re-centralized,but in fact,it effectively improves the negotiation power of local governments over ministries in specific policy areas.It is a new trend of government decision-making to strengthen the integration of reform systems and promote the synergy and efficiency of departments.