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随着中国公共政策制定日趋科学化、民主化,政策参与者针对特定议题的冲突愈发复杂和激烈。既有研究强调通过政策协商寻求共识对决策制定的重要性,但却未能对权力、地位和资源不对等的参与者之间如何实现政策协商给予合理解释。本文以南方省残疾儿童保护政策立法为例,探究参与者的协商过程,展示其达成政策共识的行动策略,总结促成政策协商的影响因素及其作用机制。在社会政策立法过程中,形成否决威胁是促成地位不对等的政策参与者进行协商的关键因素。为了实现与省长的政策协商,省人大下属专门委员会以制度化交流的方式凸显焦点争议,并自下而上地传递法案被否决的威胁,最终引发高层领导者之间以私人沟通方式来“摆平”争议,确保法案通过。本研究不但可以深化对中国社会政策制定过程的理解,而且为观察地方人大在治理体系中的角色和功能变化提供了新维度。
As the development of public policy in China becomes more and more scientific and democratized, the conflicts among policy participants on specific issues become more and more complicated and intense. While existing studies emphasize the importance of seeking consensus through policy consultation on decision making, they fail to provide a reasonable explanation of how policy negotiations between participants with unequal power, status and resources can be achieved. This paper takes the legislation of disabled children protection policy in Southern Province as an example to explore the consultation process of participants, to demonstrate its tactics of reaching consensus on the policy and to summarize the influencing factors and the mechanism of the policy negotiation. In the process of legislation on social policies, the formation of a veto threat is a key factor in negotiating with policy participants that contributed to the unequal status. In order to achieve policy consultation with the governor, Provincial People’s Congress subordinate special committees to highlight the focus of controversial way to institutionalize the exchange and bottom-up transmission of the threat of the bill was rejected, and ultimately lead to high-level personal communication between the leaders “Settle” controversy, to ensure that the bill passed. This study not only deepens the understanding of China’s social policy-making process, but also provides a new dimension for observing the changes of the role and function of local people’s congresses in the governance system.