【作者】 盛志宏；

【导师】 江立华； 谢舜；

【作者基本信息】 华中师范大学 ， 社会学， 2012， 博士

【摘要】 公共政策供给推动社会转型；社会转型促使政策供给演化为制度供给；制度供给推动社会向着新型现代性迈进。这是社会互构论的视角,显示着国家与社会的关系。社会政策议程设置模式的嬗变是对国家与社会互构机制的一种尝试性解释,它从公众参与政策过程的角度揭示了两者相互型塑的历史、现状与未来。公共政策供给推动社会转型,这是文章的逻辑起点,也是国家与社会相互型塑的起点：国家型塑社会。然而公共政策诸要素(公共政策主体、公共政策问题、公共政策目标、公共政策信息等)在运行过程中呈现出垄断性、主观性、非公平性、非共享性等特征,进而导致了社会排斥。只有公众有效参与到政策过程才可以将其消除。社会政策领域与民众利益密切相关,而且社会排斥也集中于此,是文章展开论述的背景。从公众是否参与政策过程以及是否从政策中获得利益两个维度,构建出一个“嵌入性-利益相关者”的指标,并以此视角总结建国以来社会政策的演变以及公众参与社会政策的角色变化：建国—1978年,社会政策以公平为导向,公众是非嵌入性的受益者；1978年—2003年,社会政策以发展为导向,公众是非嵌入性的受损者;2003年至今,社会政策以民生为导向,公众是嵌入性的利益相关者。所谓“嵌入性”指向社会政策制定的全过程,主要由议程设置(包括提供备选方案)和政策决策两个阶段组成。分析“孙志刚”事件引发的社会政策变迁的过程以及新政策实施的非预期结果,结论是民众在议程设置阶段的参与极为关键。因为制定社会政策不仅仅是为了解决社会问题,更为根本的目标在于满足民众的需求。民众在议程设置阶段的充分参与是其需求得以表达、利益得以整合的最佳途径。探讨民众参与政策议程设置的模式,可以发现公众参与议程设置的制度化渠道有限,而非常规行为在公众的利益表达中较为重要。以议程设置主体——决策者、精英和民众——之间的互动为视角,总结出建国以来议程设置模式的嬗变轨迹：权威主导型—经济引导型—多元主体互动型。究其原因,是转型过程中国家与社会之间的互动关系决定的,或者说是国家权力、市场权力与社会权力互构的结果。三者的契合与互构需要相应的法理机制与解释机制来实现,议程设置就是这样的“场域”,国家、市场和社会可以在相互言说的表达过程中达到共识,认同相互权力的合法性与利益的合理性。与国家权力、市场权力相比,社会权力最为弱小,但也最具能动性,民众的非常规行为是对自身合理利益无法得到满足的强烈表达,是“生活化的政治”,需要制度的保障与引导。政策供给必须转向为制度供给,才能满足社会发育的需要,实现其与国家、市场的制衡。协商民主的实质是全民参与,既利于培育民间组织又便于建构公共舆论,是与议程设置内在价值最为契合的民主制度。至此,政策供给转向制度供给,这是文章的逻辑终点,也是国家与社会相互型塑的阶段性终点：社会型塑国家,同时这又成为下一阶段的起点。政策演变、社会转型、议程设置模式嬗变、政策供给转向,且彼此之间的相互影响又交织在一起。这不是咬文嚼字的游戏,这正是我们当前时代的最大特征：两重性和复杂性相交错的快速转型!时代的特征标明了论文的言下之意与未尽之言：国家与社会在下一阶段的相互型塑。政策供给转向为制度供给,这将推动新的社会转型：从旧式现代性向新型现代性的进发,而这一社会转型过程又将引发社会政策的演变：发展性或投资性社会政策。这不仅是逻辑推导的结果,也是我们已经或即将看到的未来。更多还原

【Abstract】 From the perspective of Social Mutual-construction, public policy supply promotes social transformation;and social transformation push the policy-based policy supply forward to institutionalized supply which push the society moving towards a new modernity. The social policy agenda setting mode is a tentative explanation of the mechanism of mutual-construction between state and society. It reveals the history, the present and the future of their mutual-shaping from the perspective of public participation in the policy making process.That public policy supply promotes social transformation is not only the logic origin of this article but also the beginning of the mutual-shaping between state and society:state shape society. The elements of public policy (subject, problem, target and information etc.) presents non-public features such as monopoly, subjective, unfairness and non-shared. The unfairness of public policy leads to social exclusion, which can be exterminated only by effective public participation in policy making process.Social policies are closely related to the interests of the people, and social exclusion is highly connected to social policies,so,this article will take them as the basic of discussion. Wether the public participate in the process of policy setting and wether the public benefited the from the policy are the two dimensions from which we construct "embedded-stakeholders" indicators to summarize the evolution of social policy since the founding of the People’s Republic of China and the roles people take during the course.From1949to1978, the social policy are fair-oriented and the public are non-embedstakeholders;from1978to2003, they are development-oriented and the public impair from non-embed;since2003, social policies seek to promote the livelihood of people, and the public are stakeholders of embedded,"embedded" here refers to the whole course of social policy-making,mainly including the stages of agenda setting (including options) and policy decision-making. By analysing the process of social policy changing triggered by "Sun Zhigang incident" and the unexpected results of the implementation of new policy, we found that public participation in policy agenda setting is most critical.The logical starting point of social policy making is not to solve social problems, but rather to meet the needs of the public,so,full participation of the public in the stage of policies agenda setting is the best way for them to express their needs and to integrate interests of all partise.By portraing the mode of how the public participate in policies agenda setting,we find that institutionalized channels for the public are limited, so non-conventional behavior is becoming important for them to express their interests. From the perspective of interaction among agenda setting subject:decision makere, lites and common people, the evolution routes of policies agenda setting were concluded:authority-led type, economic-led type, multiple subject interaction type. The route is decided by the interaction between state and society in the course of social transformation, or in other words,it is the result of the mutual construction of state power, market power and social power. For all these three powers to fit each other and to mutual-construct, appropriate legal mechanisms and explanation mechanisms are needed. Agenda setting is one such "field" where state, market and society can reach a consensus in expressing mutual speech and approval of the legitimacy of mutual power and the rationality of each other’s interests.Social power is the weakest one compared to state power and social power but is the most initiative. Non-conventional behavior is a strong expression when the public’s rational interests can’t be met.It is "life-oriented politic" which need to be guided and secured systematically. The supply of policy must be changed from a Policy-based way into institutionalized supply way in order to meet the needs of social development and to balance with state and market. The nature of consultative democracy is public participation which not only nurtures non-government organization but also facilitates the construction of public opinion, and is the best democracy system correspondence to the intrinsic value of the agenda setting. The logical end of this article is that policy-based supply turns into institutionalized supply. Such a change is not only an end point of the stages that mutual-shaping between state and society but also a start point of next stage.A stage features with transformation, evolution, transmutation, turning, together with interaction between each parts. It’s not a verbal chick but the most significant feature of contemporary:rapid transformation intertwined with duality and complexity. The characteristics of this age indicates the implication of this article and what is not yet expressed:the mutual-shaping of state and society in the next stage.Policy-based supply turns into institutionalized supply will promote a new social transformation:old modernity marching into a new one. And this process of social transformation will lead to a new stage of social policy evolution:developmental social policy or investmental social policy. This is not only the result of rational logical derivation, but also what we have seen and are about to see in the future.更多还原