公共政策是指公权力主体为进行社会管理、解决社会问题而制定的公共行为规则、决策、准则等，其内涵相对确定而外延模糊宽泛，究其实质是反映公共意志、承载公众福利的一系列行为规则。传统理论中立法机关与行政机关是公共政策的制定者，司法机关是公共政策的执行者，但随着转型社会的推进与社会矛盾的激增，立法者的有限理性与立法程序的复杂性使得法律在面对社会新问题时显得力不从心，诸多矛盾问题被推入了司法程序，司法创制公共政策逐渐发展起来，特别是在中国当下社会转型发展的现代化背景下，这一现象愈加明显与复杂。司法在审判职能的基础上创制公共政策具有推进公平正义、促进社会发展的应然意义，但是实践中司法机关参与公共政策创制的理论争议较大，且由于缺乏完善的制度与特定程序的规范，司法创制公共政策可能对民众权利造成不利影响，因此有必要分析中国公共政策的司法创制现象，梳理其存在的合理性与问题，探寻司法创制公共政策的完善以促进司法公共政策审慎克制的发展。本文针对如上问题论述：第一章介绍公共政策司法创制的一般理论，包括公共政策的涵义，关于这一现象的不同理论立场，这一现象存在的现实根源以及司法克制主义与能动主义对此的不同看法，为下文论述铺垫基础。第二章围绕公共政策司法创制的域外实践，分析了美国、英国、德国等几个典型国家关于司法创制公共政策的主要做法。第三章论述了中国公共政策司法创制的现状：先分析公共政策司法创制的原因，然后分析司法推进公共政策创制的途径，最后指出这一现象在实践中存在的问题。第四章讨论了中国公共政策司法创制的完善，针对问题对于司法创制公共政策的完善提出思路。

Public policy is that the common codes and rules for the public power manages to administrate the society and solve the troubles, of which connotation is certain and extension is obscure. But the key of public policy is to abide by general will and to pursue common interest. In traditional theory, The legislative and Administrative are makers of public policy and the judiciary is the executor of public policy, but with promoting of social transformation and surge of social contradictions, bounded rationality of legislators and the complexity of the legislative process make law in the face of new social problems appeared to be inadequate and many contradictions are pushed into the judicial process, so judicial initiation of public policy gradually developed, especially in the modern context of the development of China’s contemporary social transformation, this phenomenon is more obvious and complicated. Judicial initiation of public policy which is on the basis of judicial functions should advance fairness and justice, and promote social development ideally, but in practice, the judiciary involves in the initiation of public policy which has more theoretical controversy, and because of the lack of a comprehensive system and specification of a particular program, judicial initiation of public policy may adversely affect the rights of the people, so to promote judicial restraint prudent public policy development, it is necessary to analysis the phenomenon of China’s judicial initiation of public policy, sort out the rationality and its existing problems, and explore the limits of judicial initiation of public policy.This paper discusses the above problems: the first chapter introduces the general theory of judicial initiation of public policy, including the implication of public policy, different theoretical positions and practical root on the cause of this phenomenon, and the different views of this phenomenon of judicial restraint and judicial activism. The second chapter creates around the practice of foreign judicial initiation of public policy, which analyzes the main approach of judicial initiation of public policy of several typical nations. The third chapter discusses the current situation of China’s judicial initiation of public policy, which analyzes reasons of judicial initiation of public policy, the way to promote judicial initiation of public policy, and the existing problems of this phenomenon in practice. The fourth chapter discusses the improvement of China's judicial initiation of public policy, which proposes ideas to improve from the aspects of the belief of philosophy, construction of main body, selection of forms, setting of procedures, and abide by the principles of judicial initiation of public policy.