地方政府的政策整合如何促进政策有效执行——云南省S县政策“组合拳”的案例研究

How Policy Integration of Local Government Promotes Effective Implementation——A Case Study of S County's Synergy of Different Policies

政策执行是政策过程的重要环节,协调统一的政策关系是实现政策有效执行的关键因素。然而,现有研究多偏重单一政策执行情境,相对忽视了多元政策执行情境。为此,借鉴政策整合的概念,本文通过对云南省S县打好政策“组合拳”的探索性个案研究,分析地方政府对不同政策关系的调适及其影响政策执行的过程。研究发现,为统筹多元政策关系及其执行,地方政府通过政策目标价值统合、政策工具组合实施、政策系统结构集成的运作方式实现政策整合;政策整合则通过目标群体建构、执行主体交互和政策效应叠加的作用机制,促进政策的有效执行。这些发现是对政策整合研究的情境性拓展,发展了政策关系的知识谱系。作为政策关系调适的理想类型,政策整合突破了政策执行发生于单一且分离的政策子系统的理论预设,为理解中国场景的政策执行提供了新的分析视角,对地方政府优化政策系统结构和协调多元政策关系具有重要的实践启示。

Policy implementation is an important link in the policy process,and coordinated policy relations are critical to effective policy imple-mentation.Existing research focuses on a single policy implementation situation,relatively ignoring multiple policy implementation situation.To ad-dress this gap,drawing on the concept of policy integration,the objective of this paper is to analyze the process of how the local government's ad-justment of the relations among different policies affects policy implementation by conducting an exploratory case study on S County's synergy of different policies.This study finds that,to coordinate diverse policy relations and their implementation,local government achieves policy integration through the value integration of policy objectives,the combination of policy tools,and the integration of policy system structure.Moreover,the re-construction of target groups,the interaction of implementation subjects,and the superposition of policy effects are presented as mechanisms by which policy integration can promote policy implementation.These findings are a contextual expansion to policy integration research and develop the knowledge spectrum of policy relations.As an ideal type of the adjustment of policy relations,policy integration challenges the theoretical as-sumption that policy implementation occurs in a single and separate policy subsystem and provides a new analytical perspective for policy imple-mentation in China.It has important practical implications for local governments to optimize the structure of policy system and harmonize diverse policy relations.