政策学习的议题情境与组织模式——以国家“十四五”规划编制为例

On Issue Contexts and Organizational Modes in Policy Learning:Taking the Compilation of the“14th Five-Year”Plan as an Example

复杂议题的政策制定需要构建议题学习网络,有针对性地收集相关信息,促进知识生产和应用,提升决策的科学性和正当性。从议题不确定性和知识需求两个维度,区分政策学习的四种类型,分别是集思广益型学习、委托研究型学习、利益协商型学习、专家讲解型学习,解析每一种模式的适用情境和功能定位。选择国家“十四五”规划编制进行案例研究,剖析决策系统面对高度不确定性的政策议题,如何通过有组织的学习途径增进认知,进而将知识生产转化为政策安排。议题不确定性和知识需求直接影响着政策学习的组织模式,随着不确定性降低或知识需求发生变化,政策学习的组织模式也要相应调整。开展政策学习需要区分议题情境,选择适宜的专家或公众参与机制,提高政策知识供给的效率及适用性。

The making of policies on complex issues requires the construction of a network of thematic learning,intentional collection of relevant information,promoting the production and use of knowledge,and improving the scientific degree and credibility of decision-making.From the perspectives of thematic uncertainty and knowledge demand,this study discusses four modes in studying policies:collective wisdom commissioned research,interest negotiation,and professional interpretation.Each mode has its corresponding applicable contexts and functions.This study further selects the making of the“14th five-year”plan as a case study,in order to analyze how the decisionmaking system can improve the understanding of policies through organizational learning and transforming knowledge production into policy arrangements in confronting the uncertainty of the issues in decision-making.This study finds that thematic uncertainty and knowledge demand directly affect the organizational mode in studying policies.As thematic uncertainty decreases or knowledge demands change,the organizational mode for the study of policy should be adjusted accordingly.It is required to distinguish the circumstances of issues,to choose appropriate expert or public participation mechanisms,and to improve the effectiveness and application of the supply of policy knowledge.