如何形成政策共识：社会政策立法过程中的协商政治--以南方省残疾儿童保护政策立法为例  

How to Reach Policy Consensus: The Politics of Policy Negotiation in the Provincial Social Legislation

作　　者：肖棣文[1] 姜逾婧 朱亚鹏[3,1] 

机构地区：[1]中山大学政治与公共事务管理学院,广州市510275 [2]广东省人大法制工作委员会,广州市510080 [3]中山大学中国公共管理研究中心

出　　处：《政治学研究》2016年第2期108-120,128,共13页CASS Journal of Political Science

基　　金：国家社科基金重大招标项目“中国特色现代社会福利制度框架设计研究”(15ZDA050);教育部人文社科重点研究基地重大项目“资产为本的社会政策研究(14JJD630014)”的研究成果

摘　　要：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。Policy disputes among policy actors in Chinese decision making process have become increasingly salient. Previous research on the policy negotiations emphasizes its importance on solving policy disputes while paying less attention to how the policy negotiation was conducted,especially among policy actors with unequal political position and from different political system. Illustrating by a study of the social protection legislation for disabled people in one South Province,this shows how key actors in the Provincial People's Congress( PPC) affect local decision making by negotiating with the administrative leader. It emphasizes strategies the special committee within the PPC adopted in the policy negotiation and finds that forming veto threat is crucial for the policy negotiation. The special committee exerts its influence by political coordination and issue framing. Formally communicating with other actors,the special committee holds its stance and transforms the policy dispute into veto threat. It was the veto threat that triggers informal negotiation between local leaders to overcome the deadlock and facilitates the local legislation. This study shed lights on a better understanding of the dynamics of policy making and the rising role of Local People's Congress in China.

关 键 词：政策共识 协商政治 社会政策立法 

分 类 号：D63[政治法律—政治学]