ความหมายของนโยบายสาธารณะ
ความหมายของคำว่า “นโยบายสาธารณะ” นั้น มีนักวิชาการหลายท่าน ได้ให้ความหมายที่แตกต่างกันไป อาทิ (อมรศักดิ์ กิจธนานันท์, บรรยาย )
Ira Sharkansky : กิจกรรมที่กระทำโดยรัฐบาลซึ่งครอบคลุมกิจกรรมทั้งหมดของรัฐบาล
Thomas R.Dye : สิ่งที่รัฐบาลเลือกจะกระทำหรือไม่กระทำ ในส่วนที่รัฐบาลเลือกกระทำ จะครอบคลุมกิจกรรมต่างๆ ทั้งหมดของรัฐบาล ทั้งกิจกรรมที่เป็นกิจวัตรและกิจกรรมที่เกิดขึ้นในบางโอกาส
James E. Anderson : แนวทางการปฏิบัติหรือการกระทำซึ่งมีองค์ประกอบหลายประการ ได้แก่ ผู้ปฏิบัติหรือผู้กระทำที่จะต้องรับผิดชอบในการแก้ไขปัญหาที่เกี่ยวข้องกับสังคม โดยมีจุดมุ่งหมายชัดเจนว่า สิ่งใดที่จะต้องกระทำให้สำเร็จ มิใช่สิ่งที่รัฐบาลเพียงแต่ตั้งใจกระทำหรือเสนอให้กระทำเท่านั้น โดยต้องจำแนกให้เห็นความแตกต่างที่ชัดเจนระหว่างนโยบายกับการตัดสินใจของรัฐบาล
David Easton : อำนาจในการจัดสรรคุณค่า (value) ทั้งมวลในสังคม โดยผู้มีอำนาจในการจัดสรร ก็คือ รัฐบาล ซึ่งสิ่งที่รัฐบาลตัดสินใจที่จะกระทำหรือไม่กระทำเป็นผลมาจากการจัดสรรคุณค่าในสังคม
ส่วน พีรธร บุณยรัตพันธ์ (บรรยาย) ให้ความหมายนโยบายสาธารณะ ว่าหมายถึง การที่รัฐใช้อำนาจตัดสินใจ เลือก หรือแสดงนัยที่จะกระทำ หรือไม่กระทำสิ่งหนึ่งสิ่งใด ซึ่งปรากฏออกมาในรูปของแนวทาง หรือเงื่อนไข ที่นำไปสู่การมีปฏิสัมพันธ์ภายในและภายนอกองค์กรของรัฐ และเพื่อบรรลุเป้าหมายที่พึงประสงค์ในการอยู่ร่วมกันเป็นรัฐ
สรุปได้ว่า นโยบายสาธารณะ เป็นกิจกรรมที่รัฐบาลตัดสินใจกระทำแก่ประชาชน โดยมีวัตถุประสงค์เพื่อประโยชน์และความผาสุกของประชาชนเป็นส่วนใหญ่ หรือเพื่อใช้ในการแก้ปัญหาทั้งมวลของสังคมในด้านต่างๆ
องค์ประกอบของนโยบายสาธารณะองค์ประกอบนโยบายสาธารณะของแต่ละประเทศ มีองค์ประกอบที่แตกต่างกันไป ด้วยเพราะสภาพทางด้านสังคม ภูมิศาสตร์ ประเพณีวัฒนธรรม การนับถือศาสนา สิ่งแวดล้อม และบริบท แตกต่างกัน อมรศักดิ์ กิจธนานันท์ (บรรยาย ) ได้สรุปองค์ประกอบนโยบายสาธารณะโดยรวมที่สำคัญ ไว้ 13 ประการ คือ
1.เป็นกิจกรรมที่รัฐบาลเลือกที่จะกระทำหรือไม่กระทำ
2.เป็นการใช้อำนาจหน้าที่ของรัฐในการจัดสรรกิจกรรมเพื่อตอบสนองคุณค่าของสังคม
3.ผู้มีอำนาจในการกำหนดนโยบายสาธารณะ ได้แก่ ผู้นำทางการเมือง ฝ่ายบริหาร ฝ่ายนิติบัญญัติ ฝ่ายตุลาการ พรรคการเมือง สถาบันราชการ ข้าราชการ และประมุขของประเทศ
4.กิจกรรมที่รัฐบาลเลือกที่จะกระทำต้องเป็นชุดของการกระทำที่มีแบบแผน ระบบ และกระบวนการอย่างชัดเจน เป็นการกระทำที่มีการสานต่ออย่างสม่ำเสมอ และต่อเนื่อง
5. กิจกรรมที่รัฐบาลเลือกที่จะกระทำต้องมีเป้าหมาย วัตถุประสงค์หรือ จุดมุ่งหมายเพื่อตอบสนองความต้องการของประชาชนจำนวนมาก
6.เป็นกิจกรรมที่ต้องกระทำให้ปรากฏเป็นจริง มิใช่เป็นเพียงการแสดงเจตนารมณ์หรือความตั้งใจที่จะกระทำด้วยคำพูดเท่านั้น
7.กิจกรรมที่เลือกกระทำต้องมีผลลัพธ์ในการแก้ไขปัญหาที่สำคัญของสังคม ทั้งปัญหาความขัดแย้งหรือความร่วมมือของประชาชน
8.เป็นการตัดสินที่จะกระทำเพื่อผลประโยชน์ของประชาชนจำนวนมาก มิใช่การตัดสินเพื่อประโยชน์เฉพาะบุคคล และเป็นชุดของการตัดสินใจที่เป็นระบบมิใช่เป็นการตัดสินใจแบบเอกเทศ
9.เป็นการเลือกทางเลือกที่จะกระทำ โดยพิจารณาจากผลการวิเคราะห์ทางเลือกที่เหมาะสมที่สุดทั้งทางการเมือง เศรษฐกิจ และสังคม
10. เป็นกิจกรรมที่เกิดจากการต่อรองหรือประนีประนอมระหว่างกลุ่มผลประโยชน์ที่เกี่ยวข้อง
11. เป็นกิจกรรมที่ครอบคลุมทั้งกิจกรรมภายในประเทศและระหว่างประเทศ
12. กิจกรรมที่รัฐบาลเลือกที่จะกระทำหรือไม่กระทำ อาจก่อให้เกิดผลทั้งทางบวกและทางลบต่อสังคม
13. เป็นกิจกรรมที่ชอบด้วยกฎหมาย
สรุปได้ว่า องค์ประกอบที่สำคัญของนโยบายสาธารณะ คือ ต้องเป็นกิจกรรมที่รัฐบาลตัดสินใจกระทำ ต้องมีวัตถุประสงค์ เป้าหมายที่ชัดเจน ต้องมีการวางแผนการดำเนินการอย่างเป็นระบบ ต้องตอบสนองความต้องการของประชาชนส่วนมาก และต้องถูกต้องตามกฎหมาย
ความสำคัญของนโยบายสาธารณะความสำคัญของนโยบายสาธารณะ อมรศักดิ์ กิจธนานันท์ (บรรยาย) ได้กล่าวว่า นโยบายสาธารณะ มีความสำคัญต่อผู้กำหนดนโยบาย ต่อประชาชน อีกทั้งยังเป็นเครื่องมือของรัฐบาลในการบริหารประเทศ ซึ่งพอสรุปได้ดังนี้
ความสำคัญต่อผู้กำหนดนโยบาย รัฐบาลที่สามารถกำหนดนโยบายให้สอดคล้องกับความต้องการของประชาชน และสามารถนำโยบายไปปฏิบัติจนประสบความสำเร็จอย่างมีประสิทธิภาพ และประสิทธิผล จะได้รับความเชื่อถือและความนิยมจากประชาชน ส่งผลให้รัฐบาลดังกล่าวมีโอกาสในการดำรงอำนาจในการบริหารประเทศยาวนานขึ้น
ความสำคัญต่อประชาชน นโยบายสาธารณะเป็นผลผลิตทางการเมืองเพื่อตอบสนองความต้องการของประชาชน ดังนั้นประชาชนสามารถแสดงออกซึ่งความต้องการของพวกเขาผ่านกลไกทางการเมืองต่าง ๆ เช่น ระบบราชการ นักการเมือง ฯลฯ ความต้องการดังกล่าวจะถูกนำเข้าสู่ระบบการเมืองไปเป็นนโยบายสาธารณะ เมื่อมีการนำนโยบายไปปฏิบัติและได้ผลตามเป้าประสงค์ ก็จะทำให้ประชาชนมีสภาพความเป็นอยู่ที่ดีขึ้น
ในด้านการเป็นเครื่องมือบริหารประเทศ สามารถสรุปได้หลายประการ อาทิ
1.เป็นเครื่องมือสำคัญในการกำหนดทิศทางการพัฒนาประเทศ
2.เป็นเครื่องมือของรัฐบาลในการตอบสนองความต้องการของประชาชน
3.เป็นเครื่องมือของรัฐบาลในการแก้ไขปัญหาที่สำคัญของประชาชน
4.เป็นการใช้อำนาจของรัฐบาลเพื่อจัดสรรสิ่งที่มีคุณค่าทางสังคม
5.เป็นเครื่องมือของรัฐบาลในการเสริมสร้างความเป็นธรรมในสังคม
6.เป็นเครื่องมือของรัฐบาลในการเสริมสร้างความเสมอภาคในโอกาสแก่ประชาชน
7.เป็นเครื่องมือของรัฐบาลในการกระจายรายได้ให้แก่ประชาชน
8.เป็นเครื่องมือของรัฐบาลในการกระจายความเจริญไปสู่ชนบท
9.เป็นเครื่องมือของรัฐบาลในการพัฒนาวิทยาศาสตร์และเทคโนโลยี
10. เป็นเครื่องมือของรัฐบาลในการอนุรักษ์สิ่งแวดล้อม
สรุปได้ว่าความสำคัญของนโยบายสาธารณะ ก็คือ เครื่องมือที่จะทำให้ประชาชนในประเทศมีความผาสุก และสามารถอยู่ร่วมกันในสังคมได้อย่างสมานฉันท์
ลักษณะนโยบายสาธารณะที่ดีควรเป็นอย่างไร?อนุสรณ์ ธรรมใจ ได้กล่าวไว้ในหนังสือพิมพ์กรุงเทพธุรกิจ เมื่อวันศุกร์ที่ 16 ธันวาคม พ.ศ. 2548 ว่า การบริหารประเทศเพื่อให้บรรลุเป้าหมายประโยชน์สูงสุดต่อประเทศและประชาชน จำเป็นต้องมีนโยบายสาธารณะที่ดี และกระบวนการจัดการนโยบายต้องมีประสิทธิภาพ เพื่อให้เกิดผลในทางปฏิบัติ นโยบายที่ดี นโยบายที่ดีน่าจะเกิดจากการมีส่วนร่วมของทุกภาคส่วนมากที่สุด เป็นแนวทางในการจัดสรรแบ่งปันทรัพยากรที่มีอยู่ในสังคมระหว่างกลุ่มผลประโยชน์ และประชาชนอย่างเป็นธรรม มีประสิทธิภาพ และยึดถือคุณธรรมในการดำเนินการ นโยบายที่ดีจะต้องเปิดกว้างให้ตอบรับและตอบสนองต่อความคิดและข้อเสนอแนะดีๆ ได้อย่างไม่มีข้อจำกัดอัจฉรา รักยุติธรรม (2548) ได้กล่าวถึง นโยบายสาธารณที่พึงปรารถนาว่า ควรมีการพัฒนาการมีส่วนร่วม ของชุมชนท้องถิ่นซึ่งเป็นผู้ได้รับผลกระทบจากนโยบายต่างๆ โดยตรง แต่ปัจจุบัน พวกเขามีสิทธิมีส่วนร่วมแค่รับฟังการชี้แจงโครงการ หรือให้ข้อมูลบางประการเท่านั้น แต่ไม่เคยที่ได้เข้าไปมีส่วนร่วมในการตัดสินใจว่าควรจะให้มีโครงการนั้นๆ เกิดขึ้นหรือไม่ นี่เองเป็นที่มาของการต่อต้าน คัดค้าน และประท้วงกันอย่างขนานใหญ่ ไม่ว่าจะเป็นโครงการสร้างเขื่อน โครงการโรงไฟฟ้า และโครงการพัฒนาอะไรต่อมิอะไร จนบางครั้งรุนแรงถึงกับมีการล้มเวทีประชาพิจารณ์ ซึ่งถูกอ้างว่าเป็นเวทีเพื่อรับฟังความคิดเห็น แต่ชาวบ้านในท้องถิ่นไม่ยอมรับว่านั่นคือ กระบวนการมีส่วนร่วมที่แท้จริง
จากความเห็นที่กล่าวมา ประกอบกับความเห็นของผู้เขียนเอง จึงคิดว่าลักษณะของนโยบายสาธารณะที่ดีควรมีลักษณะดังนี้
1.ไม่ขัดแย้งต่อรัฐธรรมนูญที่ใช้ปกครองประเทศ
2.ไม่บั่นทอนความมั่นคงและผลประโยชน์ของชาติ ไม่ว่าโดยทางตรงและทางอ้อม
3.กระบวนการจัดทำนโยบายต้องมีประสิทธิภาพ มีกระบวนการศึกษาปัญหาต่างๆ อย่างมีระบบ ค้นหาสาเหตุที่แท้จริง และหาหนทางการแก้ไขที่ดีที่สุด แล้วจึงนำมาออกเป็นนโยบาย
4.นโยบายสาธารณะที่ดี ควรจะเกิดจากการมีส่วนร่วมของประชาชน หน่วยงานและองค์กร ผู้มีส่วนได้ส่วนเสียทุกภาคส่วน
5.นโยบายสาธารณะนั้นทำให้ประชาชนในประเทศมีความผาสุก และสามารถอยู่ร่วมกันในสังคมได้อย่างสมานฉันท์ ไม่ก่อให้เกิดการแตกแยกความสามัคคีของประชาชน
6.วัตถุประสงค์ของนโยบายสาธารณะนั้น ต้องยึดถือผลประโยชน์ของประชาชนจำนวนมาก มิใช่การเพื่อประโยชน์เฉพาะบุคคลกลุ่มใดกลุ่มหนึ่ง
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อ้างอิง
พีรธร บุณยรัตพันธุ์ (ผู้บรรยาย). (2551). สไลด์ประกอบการบรรยายวิชานโยบายสาธารณะ.พิษณุโลก : สาขาวิชารัฐศาสตร์และรัฐประศาสนศาสตร์ คณะสังคมศาสตร์ มหาวิทยาลัยนเรศวร.
อนุสรณ์ ธรรมใจ. (2548, ธันวาคม 16). นโยบายสาธารณะเพื่อประเทศไทยที่ดีกว่า.กรุงเทพธุรกิจ.
อัจฉรา รักยุติธรรม. (2548, มิถุนายน 23). นโยบายสาธารณะที่พึงปรารถนา.กรุงเทพธุรกิจ.
อมรศักดิ์ กิจธนานันท์ (ผู้บรรยาย). (2551). สไลด์ประกอบการบรรยายวิชาแนวคิดและทฤษฎีกระบวนการนโยบายสาธารณะ. เพชรบุรี: คณะเทคโนโลยีสารสนเทศ มหาวิทยาลัยราชภัฎเพชรบุรี.
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