政策执行是政策目标实现的重要一环，对政策执行过程的研究是必要的。然而，过往研究囿于“中央制定政策——地方执行政策”的思维惯性，更多关注多层复杂社会治理体系下地方政府的政策执行困局，对于中央部委机构的政策执行问题鲜有关注。实际上中央部委机构在很多政策上有“双重身份”，既是政策制定者也是政策执行者，是否也会出现政策执行困局？这些困局有怎样的特点？如何破解？有待进一步研究。 本文以中央国家机关事业单位养老保险制度改革政策八年的执行过程为例，运用调查法、数据分析法、文本分析法收集材料并对案例进行深入分析，总结该政策执行过程中面临的主要冲突、冲突的发展变化及消解过程。基于“模糊-冲突”模型和多源流模型，构建了中央部委机构执行冲突性政策的解释框架。研究发现：第一，政策冲突性在长期的政策执行过程中会不断变化。因公共管理问题的复杂性和人的有限理性，尽管政策制定本着完备的原则，但很难做到尽善尽美。鉴于改革不可预见的情况，在执行过程中冲突往往不可避免，原本低冲突政策也极易演变为高冲突政策。第二，政策冲突性与模糊性之间会互相影响。当政策冲突性长期居高不下时，政策模糊性被放大利用，模糊执行成为降低政策冲突性的方式之一，但模糊执行引起的不公平又会使冲突加剧。第三，政策的高模糊高冲突性可以推动源流汇聚重启政策议程。在本案例中政策议程重启后呈现了政策修正、政策细化、强制执行三种路径选择。第四，在政策模糊性低，原则明确、边界清楚的情况下，中央部委机构执行冲突性政策的灵活性要低于地方。因执行自主权小、监督约束力度强、多源流作用机制复杂，中央部委机构政策议程重启更难。 通过与地方执行该政策的过程比较，笔者发现中央和地方政策执行过程中的冲突情况不同、模糊或变通执行实现的可能性不同、政策议程重启后的路径选择不同。基于中央部委机构政策执行政治压力大、维稳要求高、示范效应强的特点，建议加强政策制定时的预见性，建立良好的沟通协商机制，增强问题处理的灵活性。本文的贡献在于，揭开了中央部委机构政策执行过程的神秘面纱；修正了“模糊-冲突”模型，动态地研究同一政策在不同执行阶段政策属性和执行方式的演变；对机关事业单位养老保险制度改革政策的执行和完善提出了可供参考的方向。

It is necessary to study the process of policy implementation which is an important part of achieving policy objectives. However, due to the thinking inertia of ＂central policy making - local policy implementation＂, previous studies paid more attention to the difficulties of policy implementation of local governments under a multi-level and complex governance system, and paid less attention to policy implementation at the level of central ministries and commissions. In fact, the institutions at the level of central ministries and commissions have ＂dual identities＂ in involving national public officials. They are both policy makers and policy executors. Will there also be difficulties in policy implementation? What are the characteristics? How to crack? All these needs to be studied. Taking the implementation process of the pension insurance system reform policy of in the central state organs and institutions in the past eight years as an example, with the survey method, data analysis method and text analysis method to collect materials and make a deep description of the case, this thesis summarizes the three major conflicts faced in the implementation process of the policy, the development and change of conflicts, and the conflict resolution process. Based on the ＂fuzzy conflict＂ model and the multi-source flow model, an interpretation framework for the implementation of conflict policies at the level of central ministries is constructed. The research puts it that to begin with, the policy conflict will change from time to place in the process of policy implementation. Due to the inherent defects of policy making, the conflict of policies is constantly overflowing in the implementation process, and low conflict policies are very easy to evolve into high conflict policies. Second, policy conflict and fuzziness will affect each other. When the policy conflict remains high for a long time, fuzzy implementation becomes one of the ways to reduce the policy conflict, but the policy unfairness caused by fuzzy implementation will aggravate the conflict.Third, the policy of high ambiguity and high conflict can achieve the convergence of sources and restart the policy agenda. After restart, there are generally three options--policy amendment, policy refinement and enforcement. Fourth, under the premise of low policy ambiguity, clear principles and clear boundaries, the flexibility of implementing conflict policies of central ministries and commission is lower than that of local governments. Due to the small implementation autonomy, strong supervision and constraint and complex multi-source mechanism, the policy agenda of central ministries and agencies has to undergo a more complicated process to restrart. Combined with the comparison with the local policy implementation process, the author found that the central and local governments have different conflicts in the process of policy implemntation, different possibilities of vague or flexible implemnetation, and different path choices after the restart of the policy agenda. Based on the characteristics of the policy executors at the central ministerial level, such as small autonomy in implementation, large vertical accountability and binding force, and complex multi source flow mechanism, it is recommended to strengthen the predictability in policy formulation, establish a good communication and consultation mechanism, and make decisions ahead to reduce the problem solving. The contribution of this paper lies in that it has uncovered the mysterious veil of the policy implementation process at the level of central ministries; The ＂fuzzy conflict＂ model is modified to dynamically study the evolution of policy attributes and implementation methods of the same policy in different implementation stages; The paper also puts forward a reference path for the implementation and improvement of the reform policy of the pension insurance system in government agencies and institutions.