目标群体的社会建构如何转化为公共政策——一个政策议程嵌套的解释框架

How the Social Construction of the Target Population Translates into Public Policy?——Policy Agenda Theory Building in Social Construction Framework

通过借鉴经典政策议程设置理论,本文对目标群体社会建构和政策设计框架"目标群体命题"做了进一步理论扩展和实践应用。研究认为,从目标群体的社会建构迈向最终公共政策的过程,需要从目标群体属性、制度环境、行动者及其话语策略来探寻政策议程转化的理论条件。在这个过程中,社会中不同的行动者基于一定的制度环境,通过运用各种话语策略将自己赋予目标群体的理念进行包装与推销,在形成主导性话语优势和"社会意义"的基础之上,使得与目标群体相关的社会问题能够成功地引起决策者的注意,纳入政府议程,最终实现"观念"的制度化。以90年代以来我国流动农民工管理政策变迁的考察为例,可以清晰地看到主流社会对于农民工从"负面"到"正面"的社会建构是如何不断地渗透、形塑、影响着农民工在城市中的命运安排。这也意味着,我们以往单纯基于社会事实论而形成的政策科学理论需要进一步重新予以审视和反思,否则,社会建构所承载的意义象征和符号形式将会作为"政策不平等"的起源,支配着现实生活的不公。

Drawing on policy agenda theory,the paper makes further theoretical expansion and practical test about target population proposition of social construction framework.This research suggests that explore the theoretical conditions of policy agenda transformation,which are target group attribute,institutional environment,actors and their discourse strategies.In this process,different actors package and promote their own ideas to the target group by using various discourse strategies in a certain institutional environment,and form the dominant advantages of discourse and“social significance”.Then,the social problems related to the target group can successfully attract the attention of policy makers and put on the government's agenda,which eventually realize the institutionalization of“conception”.By taking the review of the change of management policies of migrant workers in China since the 1990s,we can see clearly that the social construction of the mainstream society from the“negative”to the“positive”,which how permeates,shape and influence the fate of the migrant worker in urban areas.This research also remind us of reflecting the policy science theory based solely on social fact theory.Otherwise,the meaning symbol and symbolic form carried by social construction will turn into the origin of“policy inequality”and unfairness of real life.