对比观念、共同认知与政策制定——以土地托管政策过程为例

Competing Idea, Shared Perception and Policy-Making: The “Land Trusteeship Service” Policy Process as a Case

论文提出,如果为一个新观念确定一个既定政策观念作为其对比观念,那么就能推动这个新观念转化为政策,因为这样会使新观念更容易融入政策领域的共同认知。论文以土地托管政策过程为例,展示从观念阐释到政策制定的机制。已有理论强调的意义冲突、话语结构化、政策形象三类因素为研究奠定了理论基础,但它们对土地托管案例解释力不足,所以论文提出了新的理论框架。实证研究发现,土地托管政策制定发生的重要原因,是2013年开始由山东省供销社主导创造的新的观念阐释,它将土地托管阐释为土地流转政策的对比观念,即不流转土地也能发展农业规模经营。

If competing ideasfor a change to existing policies were allowed to be presented,then it would be more likely thata new idea would be integrated into the established shared perception. This would make the new idea more competitive in the sense that policy makers would better understand the significance and value of the new idea. Taking policy makingin the land trusteeship area as an example,this paper shows the process from idea articulation to policy formulation. Why did land trusteeship,a significant,practical innovation,take more than ten years to become policy? The three factors proposed by existing theories cannot answer this question. A theory proposed in this paper provides a more satisfactory answer. The trusteeship policy was the result of the process the Shandong Provincial Supply and Marketing Cooperatives used in 2013.It was a new way of identifying competing ideasfor land trusteeship as land transfers,but they were articulated as two different ways to achieve agricultural scaling.