国家重大区域公共政策决策过程研究——以成渝地区双城经济圈建设规划纲要为例

Theoretical Construction of Public Policy Making Mechanism for National Major Regions——Take Chengdu-Chongqing Economic Circle as A Case

国家重大区域公共政策决策过程是什么?政策窗口开启需要具备哪些条件?政策酝酿中面临分歧怎样解决?政策出台如何渐进式推进?现有理论对此并未给出充分的解释。本文以成渝地区双城经济圈规划纲要为例,试图回答以上问题。研究认为:国家重大区域公共政策决策过程主要分为政策窗口开启、引起中央关注,中央设置议程、开启政策研究,政策制定困难、中央及时引导,中央作出决策、政策制定出台等步骤,在这个过程中,政策过程呈现如下特点:国家重大区域公共政策窗口打开,既是基于顶层设计的必然要求,更得益偶然事件的连续助推;涉及“中央+多地”的国家重大区域公共政策制定中面临分歧时,超脱机构(主要是党委议事协调机构)比利益机构(主要是政府拥有项目审批权的部门)作为操盘手更能够在平衡过程中既保证地方各自利益,也符合中央战略布局需要;从动议到落地,呈现出中央最高决策者发出明确支持信号、中央最高决策层研究、中央最高级别发文的鲜明特征。

In recent years,in order to solve the growing gap between urban and rural areas,the central government has deployed national major regional public policies.What is the decision-making process?What are the conditions for opening the policy window?How to resolve differences in policy brewing?How is the policy implementation promoted gradually?This paper attempts to answer the above questions by using the case study method and taking Chengdu-Chongqing economic circle as the research unit.The research shows that the decision-making process of national major regional public policies is mainly divided into four steps.The opening of national major regional public policy window is not only an inevitable requirement based on top-level design,but also benefited from the continuous boost of accidental events.When facing differences in the formulation of national major regional public policies involving"central+multiple places",detached institutions can not only ensure local respective interests,but also meet the needs of the central strategic layout in the process of balance than interest institutions as traders.From the motion to the implementation of the policy,it presents the distinctive features of a clear signal of support from the top central decision makers,a study at the top central decision-making level,and a document issued at the top central level.