基于“政策关系”的政策知识体系论纲

公共政策知识体系的根本功能在于解释政策与政策效能之间的关系。西方公共政策知识体系构建由于受到联邦制、地方分权制和任期制的约束，选择了以“政策过程”为研究对象、以“权力结构”为分析单位，建构了政策阶段论与反阶段论知识体系，主要用来理解和解释某一层级政府或某一个部门的政策形成的原因。这一知识体系虽然有相当好的理解力和解释力，但是不能完全理解和解释中国政策实践。中国是单一制国家，实行中央集权制度和干部体制等，政策体系完整，注重政策间关联，厘清政策关系成为中国公共政策解决实践问题的前提。因此，要理解和解释中国公共政策，需要以“政策关系”为研究对象、以“责任结构”为分析单位建构起中国特色的政策知识体系，这应是中国公共政策研究的一项重要任务。

An Outline of Policy Knowledge System Based on Policy Relations

The basic function of public policy knowledge system is to explain the relation between policy and policy effectiveness. This paper argues that the construction of western public policy knowledge system is constrained by federalism, local decentralization and tenure system. It chooses “policy process” as the research object and “power structure” as the analysis unit to construct the knowledge system of policy stage theory and anti-stage theory, which is mainly used to understand and explain the reasons for the policy formation of a certain level of government or a department.Although this knowledge system has a good understanding and explanatory power, it can not fully understand and explain China’s policy practice. China is a unitary country. It implements the centralized system and cadre system, and has a complete policy system. Paying attention to the relations between policies and clarifying the policy relations have become the preconditions for China’s public policies to solve practical problems.Therefore, to understand and interpret China’s public policy, we need to take “policy relations” as the research object and “responsibility structure” as the analysis unit to construct a policy knowledge system with Chinese characteristics, which is also an important task of China’s public policy research.