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既有研究普遍将政策范式视为排他性的整体，由此形成“范式替代”与“范式竞争”的分析定式，并忽略了范式内部的多元张力及范式之间的互补可能。本文提出“政策叠加”的概念，将其界定为对既有政策工具的创新性重组与适配性配置，以此突破“单一范式线性替代”的理论局限。通过对1951—2010年中国国有企业基本养老保险制度改革的分析，本文揭示：政策叠加并非范式断裂，而是以“社会统筹-个人账户”互动为核心的动态重组机制，体现出渐进性改革中的“稳健性变革”逻辑。进一步研究表明，政策叠加的生成动力源于文化路径依赖、制度性外部压力与内在功能需求的三重作用。本文的学理贡献在于：其一，深化了对“范式通约性”的理论阐释；其二，构建了可操作化的“政策叠加”分析框架；其三，展示了中国经验在比较公共政策研究中对制度创新与范式整合的启示价值。
Abstract：This study introduces the concept of policy bricolage to account for a model of policy change that transcends the traditional dichotomy of incrementalism and paradigm shifts. Traditional analyses typically assume internal consistency within paradigms and mutual exclusivity between them, implying that old paradigms must be entirely abandoned once new paradigms emerge. However, existing phenomena demonstrate the possibility of paradigm commensurability, whereby elements from different paradigms coexist and are recombined to generate novel institutional arrangements. Building on this insight, this study conceptualizes policy bricolage as a mode of change characterized by the innovative recombination and adaptive configuration of existing policy tools to secure long-term stability while responding to immediate challenges.China's pension reform provides an instructive context for examining this dynamic. To illustrate the operation of policy bricolage, the study analyzes the evolution of the basic pension insurance system for state-owned enterprises(SOEs) between 1951 and 2010. The early SOE pension model emphasized collective responsibility, pay-as-you-go financing, and lifelong benefits under the danwei system. Since the 1990s, increasing demographic pressures and fiscal constraints led to the introduction of individual accounts aimed at enhancing long-term sustainability. However, significant contradictions soon emerged, most notably the issue of “empty accounts”. Subsequent reforms in 1995, 1997, and 2005 progressively recalibrated the balance between social pooling and individual accounts, culminating in their formal institutionalization in the 2010 Social Insurance Law.The analysis identifies three principal drivers of policy bricolage in China:(1) a cultural tradition of selective borrowing and pragmatic adaptation;(2) external pressures to pursue reform while safeguarding social stability; and(3) the persistent need to refine policy content through iterative learning. The internal logic of policy bricolage integrates pragmatism directed toward short-term problem-solving, with a principled orientation that ensures alignment with overarching institutional objectives.By theorizing and empirically illustrating policy bricolage, this study advances the understanding of robust yet adaptive policy transformation. It demonstrates how Chinese reforms integrated collective solidarity with individual responsibility to adapt to emerging economic realities while also preserving institutional continuity. More broadly, this study enriches scholarship on policy change in non-Western contexts and provides a framework for analyzing hybrid reforms in pensions, housing, and environmental governance, thereby contributing to a context-sensitive knowledge system of public policy in China.
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(1)“Bricolage”一词源自法语。克洛德·列维-斯特劳斯(Claude Lévi-Strauss)在其著作《野性的思维》中用其描述利用手头工具和资源进行创造性组合的工作方式。中文可译为“拼凑”“拼装”等,但在政策研究语境下,它指代一种基于既有制度元素的政策制定模式。
(2)为聚焦本文的核心研究议题,正文只陈列主要条款,有关管理体制、退休条件及其他实施细则等,请参见《劳动保险条例》(人民出版社编辑,1953)。
(3)“利改税”是指将“向国家上缴利润”改为“向国家缴纳企业所得税”,企业的税后利润再按照一定办法在国家和企业之间进行分配,余下的部分由企业自己支配使用。
(4)详见《国务院关于企业职工养老保险制度改革的决定》(国发[1991]33号)。
(5)详见《国务院关于深化企业职工养老保险制度改革的通知》(国发[1995]6号)。
(6)详见《国务院关于建立统一的企业职工基本养老保险制度的决定》(国发[1997]26号)。
(7)详见《国务院关于完善企业职工基本养老保险制度的决定》(国发[2005]38号)。
(8)详见《中华人民共和国社会保险法》。
基本信息:
中图分类号:F276.1;F842.67
引用信息:
[1]臧雷振,盖建泽.多重范式融合下的政策叠加——国有企业基本养老保险制度再考察[J].公共管理评论,2025,7(04):5-23.
基金信息:
国家社会科学基金重大项目“互联网发展与国家治理体系和治理能力现代化研究”(项目批准号22&ZD028)的资助