中部崛起过程中政策矛盾分析与对策研究
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摘要
自2004年3月,温家宝总理在政府工作报告中首次明确提出促进中部地区崛起,至2009年9月,国务院常务会议讨论并原则通过《促进中部地区崛起规划》,中部地区逐渐成为国家区域协调发展的战略重点,在我国经济社会发展格局中占有重要地位。
促进中部崛起的战略决策,虽然为中部地区的发展指明了方向,但中部地区要实现真正的崛起仍然任重道远,面临着诸多理论和现实问题。中部崛起战略实施时,各项细化政策在重新分配与调整社会利益的过程中,与其系统内外各要素发生冲突,导致实施过程矛盾重重。各自为政、政出多门、新老政策打架、小政策与大政策抵触、“上有政策,下有对策”等情况屡见不鲜,影响了各项政策效用的发挥和政策体系整体功能的优化,成为中部崛起的障碍。
本文以政策矛盾为研究对象,着重研究了中部崛起过程中存在的各种政策矛盾及其产生原因等相关问题,并在此基础上寻求解决中部地区政策矛盾的对策,以促使中部地区各政府部门对本地区做出合理定位,选择相应的战略和具体的政策措施,在协调各利益主体基础上,强化全局发展意识,构筑中部经济圈,深化体制改革,转变政府职能,完善利益协调机制,从而协调中部地区政策矛盾,发挥政策的积极效用,优化政策体系的整体功能,促进中部地区迅速崛起。
全文共分为七个章节：第一章,引言。阐明本文的选题背景,研究目的及意义,研究思路,研究方法,以及创新点。第二章,中部崛起战略概述。介绍中部崛起战略的提出及其战略意义,并对中部崛起战略实施现状及出现的问题作出论述。第三章,政策矛盾。在总结公共政策相关学术研究的基础上,明确提出政策矛盾概念,界定其基本范畴,并对政策矛盾体系进行归纳与分类,提出政策矛盾分析模型。第四章,中部崛起中的政策矛盾。以政策矛盾理论为基础,概述中部崛起过程中的各种政策矛盾,并对其归纳总结,介绍四种主要的表现形式；第五章,中部崛起中政策矛盾原因探析。对中部崛起过程中产生政策矛盾的原因进行深入分析,并对其主要原因作出详细论述；第六章,解决政策矛盾、加速中部崛起的对策。在前面几章分析的基础上,指出解决政策矛盾的总体要求,并结合中部地区的实际,探讨解决中部地区政策矛盾的对策与建议。第七章,结论。归纳全文的主要内容,得出结论；并指出本文的局限与不足,对有待于进一步讨论的问题进行展望。
本文以政策矛盾为研究中部地区问题的切入点,将政策矛盾理论应用于中部崛起过程,既为中部崛起战略的研究开辟了新途径,也为公共政策的研究提供了新视角。
Since March 2004, Premier Wen Jiabao clearly proposed for the first time to promote the rise of Central China in his government work report, To September 2009, a State Council executive meeting discussed and approved in principle "to promote the rise of Central China planning", Central China has become the strategic focus of national regional coordinated development, and is playing an important role in the pattern of China's economic and social development.
Although the Mid-China Rising strategic decision-making points out the direction of its development, to reach the true rise, Central China will have a long developments road with heavy burdens and face with many theoretical and practical problems. When Mid-China Rising strategy is implemented, it is full of paradox in the process of adjustment or redistribution of social benefits between the refinement and adjustment policies and its various elements within and outside. Each one going his own way, conflicting policies from different departments, fighting of new and old policies, conflicts in a small policy and a big policy, "under the policy to the countermeasure", etc, all of those are common, which affects the effectiveness of the policies and the optimization of the policy system's whole function, and becomes barriers to Mid-China Rising.
Taking Policy Paradox as the research object, this paper focuses on the issues related to various policy paradox and its causes in Mid-China Rising process, and on this basis, seeks counter measures to encourage all the central government departments to orientate equitably and lay down specific strategy and related policies and measures. Referring to coordination of various stakeholders, Central China should strengthen the awareness of overall development, build Mid-China Economic Ring, Deepen Structural Reform, transform government functions, and make the interest coordination mechanisms perfect. Thus, we can coordinate policy paradox, give play to the positive role of policies, optimize policy system's integrated function, and realize the rapid rise of Central China.
This paper includes seven chapters:ChapterⅠ, Introduction. It mainly introduces the background of selecting the topic, its purpose and significance, the train of thought, the methods, and the innovations; ChapterⅡ, An Overview of the Mid-China Rising strategy. It introduces the process of presenting the Mid-China Rising strategy and its great significance, and dissertates the current situation and problems existing in the implementation process of the strategy; ChapterⅢ, Policy Paradox. Based on the summary of academic research on Public Policy, it clearly presents the concept of policy paradox, defines its basic category, carries out the induction and classification for Policy Paradox system, and proposes the Policy Paradox Analysis Model; ChapterⅣ, Policy paradox in Mid-China Rising process. On the basis of the policy paradox theory, it gives an overview of various policy paradox in Mid-China Rising process, points out the induction and classification, and introduces four major manifestations; ChapterⅤ, Analysis on the Causes for Policy Paradox in Mid-China Rising process. After discussing reasons of policy paradox in Mid-China Rising process are, it gives a detailed discussion about its main reasons; ChapterⅥ, Counter Measures. On the base of analysis above, it puts forward the overall requirements for policy paradox, and discusses the related counter measures to solve policy paradox, combined with the practical situation of Central China; ChapterⅦ, Conclusions. It summarizes the main contents of this paper, and draws a conclusion. And then, it points out the limitations and shortcomings, and puts forward some problems remain discussed.
Taking policy paradox as the entry point for the study of Central China's problems, This paper apply the policy paradox theory in Mid-China Rising Process, which opens up new realms for the study on Mid-China Rising strategy, and also provides a new perspective for public policy research.
促进中部崛起的战略决策,虽然为中部地区的发展指明了方向,但中部地区要实现真正的崛起仍然任重道远,面临着诸多理论和现实问题。中部崛起战略实施时,各项细化政策在重新分配与调整社会利益的过程中,与其系统内外各要素发生冲突,导致实施过程矛盾重重。各自为政、政出多门、新老政策打架、小政策与大政策抵触、“上有政策,下有对策”等情况屡见不鲜,影响了各项政策效用的发挥和政策体系整体功能的优化,成为中部崛起的障碍。
本文以政策矛盾为研究对象,着重研究了中部崛起过程中存在的各种政策矛盾及其产生原因等相关问题,并在此基础上寻求解决中部地区政策矛盾的对策,以促使中部地区各政府部门对本地区做出合理定位,选择相应的战略和具体的政策措施,在协调各利益主体基础上,强化全局发展意识,构筑中部经济圈,深化体制改革,转变政府职能,完善利益协调机制,从而协调中部地区政策矛盾,发挥政策的积极效用,优化政策体系的整体功能,促进中部地区迅速崛起。
全文共分为七个章节：第一章,引言。阐明本文的选题背景,研究目的及意义,研究思路,研究方法,以及创新点。第二章,中部崛起战略概述。介绍中部崛起战略的提出及其战略意义,并对中部崛起战略实施现状及出现的问题作出论述。第三章,政策矛盾。在总结公共政策相关学术研究的基础上,明确提出政策矛盾概念,界定其基本范畴,并对政策矛盾体系进行归纳与分类,提出政策矛盾分析模型。第四章,中部崛起中的政策矛盾。以政策矛盾理论为基础,概述中部崛起过程中的各种政策矛盾,并对其归纳总结,介绍四种主要的表现形式；第五章,中部崛起中政策矛盾原因探析。对中部崛起过程中产生政策矛盾的原因进行深入分析,并对其主要原因作出详细论述；第六章,解决政策矛盾、加速中部崛起的对策。在前面几章分析的基础上,指出解决政策矛盾的总体要求,并结合中部地区的实际,探讨解决中部地区政策矛盾的对策与建议。第七章,结论。归纳全文的主要内容,得出结论；并指出本文的局限与不足,对有待于进一步讨论的问题进行展望。
本文以政策矛盾为研究中部地区问题的切入点,将政策矛盾理论应用于中部崛起过程,既为中部崛起战略的研究开辟了新途径,也为公共政策的研究提供了新视角。
Since March 2004, Premier Wen Jiabao clearly proposed for the first time to promote the rise of Central China in his government work report, To September 2009, a State Council executive meeting discussed and approved in principle "to promote the rise of Central China planning", Central China has become the strategic focus of national regional coordinated development, and is playing an important role in the pattern of China's economic and social development.
Although the Mid-China Rising strategic decision-making points out the direction of its development, to reach the true rise, Central China will have a long developments road with heavy burdens and face with many theoretical and practical problems. When Mid-China Rising strategy is implemented, it is full of paradox in the process of adjustment or redistribution of social benefits between the refinement and adjustment policies and its various elements within and outside. Each one going his own way, conflicting policies from different departments, fighting of new and old policies, conflicts in a small policy and a big policy, "under the policy to the countermeasure", etc, all of those are common, which affects the effectiveness of the policies and the optimization of the policy system's whole function, and becomes barriers to Mid-China Rising.
Taking Policy Paradox as the research object, this paper focuses on the issues related to various policy paradox and its causes in Mid-China Rising process, and on this basis, seeks counter measures to encourage all the central government departments to orientate equitably and lay down specific strategy and related policies and measures. Referring to coordination of various stakeholders, Central China should strengthen the awareness of overall development, build Mid-China Economic Ring, Deepen Structural Reform, transform government functions, and make the interest coordination mechanisms perfect. Thus, we can coordinate policy paradox, give play to the positive role of policies, optimize policy system's integrated function, and realize the rapid rise of Central China.
This paper includes seven chapters:ChapterⅠ, Introduction. It mainly introduces the background of selecting the topic, its purpose and significance, the train of thought, the methods, and the innovations; ChapterⅡ, An Overview of the Mid-China Rising strategy. It introduces the process of presenting the Mid-China Rising strategy and its great significance, and dissertates the current situation and problems existing in the implementation process of the strategy; ChapterⅢ, Policy Paradox. Based on the summary of academic research on Public Policy, it clearly presents the concept of policy paradox, defines its basic category, carries out the induction and classification for Policy Paradox system, and proposes the Policy Paradox Analysis Model; ChapterⅣ, Policy paradox in Mid-China Rising process. On the basis of the policy paradox theory, it gives an overview of various policy paradox in Mid-China Rising process, points out the induction and classification, and introduces four major manifestations; ChapterⅤ, Analysis on the Causes for Policy Paradox in Mid-China Rising process. After discussing reasons of policy paradox in Mid-China Rising process are, it gives a detailed discussion about its main reasons; ChapterⅥ, Counter Measures. On the base of analysis above, it puts forward the overall requirements for policy paradox, and discusses the related counter measures to solve policy paradox, combined with the practical situation of Central China; ChapterⅦ, Conclusions. It summarizes the main contents of this paper, and draws a conclusion. And then, it points out the limitations and shortcomings, and puts forward some problems remain discussed.
Taking policy paradox as the entry point for the study of Central China's problems, This paper apply the policy paradox theory in Mid-China Rising Process, which opens up new realms for the study on Mid-China Rising strategy, and also provides a new perspective for public policy research.
引文
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[3]陈庆云.公共政策分析[M].北京：北京大学出版社,2006：247,141.
[4]张国庆.公共政策分析[M].上海：复旦大学出版社,2004：335.
[5]Grover Starling. Strategies for Policy Making.Chicago:The Dorsey Press,1988: PP229-264.
[6]P. A. Sabatier and D. A. Mazmanian.The conditions of Effective Implementation: A Guide to Accomplishing Policy Objectives.Policy Analysis, vol.5, No.4 (Fall,1979):PP490-492.
[7]John P. Burns. Horizontal Government:Policy Coordination in China. Paper prepared for international conference on governance in Asia:Culture, Ethics, Institutional Reform and Policy Change. City University of Hong Kong, Hong Kong, (December,2002):PP1-2.
[8]张金马.公共政策分析：概念.过程.方法[M].北京：人民出版社,2004：416.
[9]陈振明.公共政策分析[M].北京：中国人民大学出版社,2003：192.
[10]王曙光,李维新,金菊.公共政策学[M].北京：经济科学出版社,2008：161.
[11]赵俊,周一虹.论经济发展与环境保护的政策协调[J].兰州大学学报(社会科学版),2004,(5)：127-130.
[12]许涵,彭迪云,姚群.促进中部崛起的经济一体化战略与实现机制初探[J].求实,2009,(8)：59-63.
[13]薛黎.范恒山：中部崛起根本在体制一体化[N/OL].中国证券网-上海证券报,2006-12-27.(2006-12-27)[2010-03-02].http://finance.sina.com.cn/g/20061227/02533198629.shtml.
[14]杨连强.利益差别与政策博弈：中央与地方关系的另类解读[J].重庆社会科学,2006,(7)：101-105.
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