蜿蜒前行的科學：立法與公共政策的制定

The Science of Muddling Through: Legislation and Making of Public Policy

以往研究認為決策者會採取建構方法來進行立法和政策制定，決策者在立法和公共政策制定過程中，首先會對所有價值與目標進行排序；隨後會考慮每一個相關因素並分析所有可行的政策方案；最後他們會選擇最能滿足上述價值與目標的立法和公共政策。但林德布洛姆指出，立法和政策制定不是以最小代價，追求最大收益的理性建構過程，而是一個連續的、影響有限的過程，現實中的決策者“很少預設價值，手段和目的互相混合，基於同意而非檢驗，分析手段更多元，很少依賴理論＂。因此，林德布洛姆主張以漸進互動的視角考察立法和政策過程。按照這種漸進理論，立法和政策制定是多方參與者反復“互動＂的結果，而不是決策主體自上而下理性“決定＂的結果，與建構主義的想像不同，立法和政策制定是在蜿蜒中前行的。

In the study of public policy, it is generally accepted that administrator will adopt the method of Rational-Comprehensive (Root method) to formulate policies. According to this approach, policy makers begin addressing a particular policy issue by ranking values and objectives. Next, they identify and comprehensively analyze all alternative solutions, and making sure to account for all potential factors. In the final step, administrators choose the alternative that is evaluated as the most effective in delivering the highest value in terms of satisfying the objectives identified in the first step. However, Charles E. Lindblom pointed out that legislation and policy making are not a rational process of constructing the greatest benefit at the lowest cost, but rather a continuous and limited process. Realistic decision makers 'rarely presuppose the value, the means and the purpose of mixing each other, based on consent rather than testing, analysis means more diverse, little reliance on theory.'Thus, Lindblom advocates a legislative and policy process from a progressive and interactive perspective. In accordance with this progressive theory, legislation and policy making are the result of repeated 'interaction' of the multi-participant, rather than the result of the policy makers' rational 'decision'. Unlike the imagination of constructivism, legislation and policy making are in muddling through.