部门利益、官僚结构与政策的制定和执行——以中国若干重大土地政策为例

在中国公共政策的制定与执行过程中，中央政府机构扮演着关键角色。与此同时，政策制定与政策执行中的部门主义现象十分普遍。本课题综合运用典型事实归纳、制度分析、案例研究、过程追踪、量化文本分析以及计量检验等方法，构建部门利益影响中国政策制定与政策执行的理论分析框架，根据官僚结构，由简入繁、循序渐进，按单个主管部门、单个相关部门、多个部门互动的研究步骤，以18亿亩耕地红线政策、水利水电工程征地补偿政策、1998土地管理法修订、围填海政策执行、高尔夫球场禁建政策执行为例开展案例研究，利用561家球场的微观数据对高尔夫球场清理整顿中的选择性执法进行计量检验，系统分析部门利益、官僚结构对政策制定与政策执行的影响，探讨部门施加影响的动机、资源和策略。最后，为在实践中清理因部门利益法制化而造成的制度扭曲、防止出现更多的部门利益法制化现象、排除部门利益对政策执行的干扰等，提出政策建议。

Central government agencies play key roles in making and implementing public policies in China. However, departmentalism is very common and widespread in Chinese central policy process. The objective of this project is to systematically study the influence of departmental interests on policy making and policy implementation in China. Motives, resources and strategies are the main concern. We will construct a theoretical analysis framework for the study of bureaucratic influence on China's policy process. Empirical research is the focus of this project. It is consist of five case studies combining process tracing and one quantitative econometric test. Methods such as conceptualizing stylized facts, institutional analysis, case studies, process tracing, quantitative text analysis, and econometric empirical testing will be employed. Cases studied include: (1) Red line policy of the 1.8 billion mu of cultivated land; (2) Compensation policy of land acquisition for water conservancy and hydropower projects; (3) Revision of Land Management Law in 1998; (4) Implementation of the policy of coastal wetlands preservation; (5) Implementation of national prohibition on the construction of new golf courses. After that, using micro data of 561 golf courses, we will test the hypothesis that departmental interests influenced selective law enforcement actions in the clearance and rectification of illegal golf courses. Finally, the research will put forward policy recommendations for cleaning up distortions caused by the legalization of departmental interests, and for eliminating the interference of departmental interests on policy implementation.