政策学习的障碍及其超越 以中国国家饮用水标准为例

Obstacles in Policy Learning and Obstacle Surmounting:The Case of China's Drinking Water Standards

本文通过对政策学习理论的梳理,借鉴了Latour的联结社会学的概念,对政策学习的社会性作了拓展,并将政策学习的问题定义为政策相关的行动者网络和异质性理念的共同演化。作者认为,在政策学习的过程中,随着网络联结的固化和知识集合稳定为"共识",政策学习的障碍也由此"共生";相反,由处在不同网络联结关系中行动者的个体学习所引发的多样性的"失衡",也为政策学习障碍的超越奠定了必要性的基础。本文进而以中国饮用水标准20年演变过程为例,验证了政策学习障碍的生成及其超越的机制。作者认为新标准的推出是在新的行动者加入的情况下原有的"环保"问题被转译成"公共安全"问题所致。同时,反思了饮用水标准本身被20世纪70、80年代和21世纪两次标准化繁盛时期边缘化的原因。最终针对标准执行过程中"公共"贯彻的不彻底以及没能透彻的理解"安全"的含义等社会体制方面的阻力,揭示了新饮用水标准在执行中可能面临的深层次困难。

This paper extends the sociality of policy learning by means of reviewing its theory and referring to Latour＇ s sociology of association, and defines policy learning as the co-evolution of the policy relevant actor-networks and their heterogeneous ideas. The author contends that, during the process of policy learning, its obstacles arise with the solidification of network associations and stabilization of knowledge sets into a ＂consensus. ＂ By contrast, various imbalances resulting from the actors＇ individual learning in different network associations serve as the necessary foundation for overcoming the obstacles. This paper examines the evolutionary case of China＇ s drinking water standards in the past 20 years to verify the mechanisms for the emergence and surmounting of the obstacles in policy learning from the constructivist perspective. The author holds that the new national standards are the product of ＂environment protection＂ being translated into an issue of ＂public safety＂ by newly participating actors. The marginalization of the drinking water standards in the two high waves for standardization in the 1970s/1980s and at the beginning of the 21st century is also reflected upon. Finally, the paper points out possible bidden difficulties in the execution of the new drinking water standards as resistance exists insocial institutions such as incompleteness in the implementation of the standards and lack of a thorough comprehension of ＂public safety. ＂