公共政策与社会共识的协调治理——以土地增值收益分配改革为例

Coordinated Governance of Public Policy and Social Consensus:A Case Study of Land Incremental Revenue Distribution Reform

研究目的:总结土地增值收益分配公共政策与社会共识的失调现象及协调治理路径,为进一步深化土地制度改革提供参考。研究方法:理论分析和归纳演绎。研究结果:(1)公共政策与社会共识存在两类失调现象,一是公共政策吸纳社会共识不足,二是公共政策引领社会共识不足,实现有效治理应基于对二者共生演化关系的准确认识;(2)在中国土地增值收益分配改革过程中,公共政策与社会共识的两类失调同时存在,一方面,土地增值收益分配公共政策对动态发展的社会共识响应不够及时、吸纳不够充分,另一方面,土地增值收益分配改革对社会共识的引领塑造效应不够彰显;(3)新时代土地增值收益分配改革,在化解公共政策与社会共识第一类失调问题上取得进展,在引领塑造社会共识方面仍需强化。研究结论:应坚持公共政策与社会共识共生演化的系统观念,注重对土地增值收益分配公共政策与社会共识的协调治理,提升土地增值收益分配改革创新的效率。

The purpose of this study is to summarize the imbalance phenomenon between public policy and social consensus of land incremental revenue distribution and its governance path,to provide reference for further deepening land institution reform.The research methods include theoretical analysis and inductive and deduction.The results show that:1)there are two types of imbalance between public policy and social consensus,i.e.,one is insufficient absorption of social consensus by public policy,and the other is insufficient guidance of social consensus by public policy.Effective governance should be based on an accurate understanding of the symbiotic evolutionary relationship between the two.2)During the land incremental revenue distribution reform in China,two types of imbalance between public policy and social consensus exist simultaneously.The public policy of land incremental revenue distribution does not respond promptly to the dynamically developing social consensus and does not fully absorb it.In addition,the leading and shaping effect of land incremental revenue reform on social consensus is not fully magnified.3)The land incremental revenue reform in the new era has made progress in resolving the first type of imbalance between public policy and social consensus,but there is still a need to be strengthened in terms of leading and shaping social consensus.In conclusion,based on the concept of symbiotic evolution system of public policy and social consensus,it is necessary to pay attention to the coordinated governance of public policy and social consensus on land incremental revenue distribution,and improve the efficiency of reform and innovation of land incremental revenue distribution.