制度、话语框架与政策设计:以网约车政策为例

Institution,Discourse Framework and Policy Design: A Case Study of Online Taxi-Hailing Service Policy

当下对于中国的政策过程的研究主要在“权力-利益”视角和“政策学习”视角下进行,对于政策设计过程的研究较为缺乏。为了回应这一问题,论文通过引入社会建构与政策设计框架,并将政策设计过程嵌入到制度环境,构建了“制度、话语框架与政策设计”的理论框架,以理解目标人群社会建构的机制,及其对政策设计的影响。进一步,以网约车政策设计过程为例,运用内容分析,论文分析了网约车的社会建构过程,及其对网约车政策设计的影响。一方面,制度构建了用于网约车社会建构的话语框架,也决定了话语过程中的决策权分配,导致了“网约车”这一目标人群在社会建构过程中的“锚定”效应。另一方面,随着时间的演进,政府采取了多种策略,通过多话语框架的差异化调用,在多种目标人群中进行仔细甄别和策略性操纵,实现了从“打车软件”到“网约车”的建构。政府将网约车“锚定”在“出租车”领域的同时,通过与“黑车-私家车”以及巡游出租车的“区隔”,建构了“网约车”社会类型。不同目标人群的社会建构与权力资源的组合,可以解释政策收益和负担的分配。

TheChinese public policy process can be observed from two theoretical views, power-resources and policy learning, but there is little explanation of the policy design process. To respondto this problem but also to integrate social construction and policy design theory and to embed policy design to the institutional environment, this paper constructs a framework of institution, discourse and policy design to explain target population construction logics.It also describes how the policy process affects the outcome of policy design. Using the online taxi-hailing service policy as a case, and by using the content analysis method, this study examined how the construction of online taxi-hailing affected the online taxi-hailing service policy design. On the one hand, institution constructed discourse framing is the bricks and mortar of social construction. It determines the allocation of decision-making power, which leads to anchoring effects in social target population construction. On the other hand, government can use multiple strategies to distinguish a variety of target populations so as to take different approaches to invoking a multi discourse framework. In this case, governmentused social construction of a target population to shift from car-hailing apps to online taxi-hailing. Specifically, by anchoring online taxi-hailing to legal taxi services, and differentiating it from unlicensed taxis, this allowed for the social category of online taxi-hailing to be constructed. The combination of target population construction and power resources can explain the allocation of policy burdens and revenue.