公众议程的形成逻辑、演进过程与政策影响——基于一起邻避型环境治理案例的分析  

Formulating Logics,Evolvement and Policy Effect of Public Agenda-Based on the Analysis of a“Not in My Backyard”Environmental Governance Case

作　　者：杨志军 YANG Zhi-jun(School of International Affairs and Public Administration,Ocean University of China,Qingdao 266100,China)

机构地区：[1]中国海洋大学国际事务与公共管理学院,山东青岛266100

出　　处：《南通大学学报（社会科学版）》2021年第1期85-96,共12页Journal of Nantong University:Social Sciences Edition

基　　金：国家社会科学基金一般项目“公共服务类邻避冲突的发生演化机制与治理路径研究”(20BGL276)。

摘　　要：传统议程设置模式因忽视公众议程使得政府决策缺乏民主性,随着多元主体有更多机会和途径参与到政策制定过程中去,以及社会公众维权意识提高、话语影响力增强,公众议程构建价值逐渐显现。作为一起典型邻避型环境治理案例,G市垃圾填埋场的形成、发展以及解决过程显示,公众议程构建要素包括风险感知、群体动员、集体抗争和新议程建立,演进路线是媒体报道催化风险感知、从风险感知到公众议程、从公众议程到问题解决;其手段是群体抗争的施压、传统与网络媒体的相互推动、上级关注推动治理结构开放,从而建立公众议程并持续接受公众监督。同时,在议程设置的触发机制、舆论传播机制和大众社会文化等方面影响决策过程,进而影响政策产出。未来需要重视公众议程在决策环节的作用,聚焦政策过程变迁中的"公众参与",增强政策决策科学化民主价值,实现以人民为中心公共政策研究目标,助推公共价值生产。Traditional agenda setting modes lead to the lack of democracy of government policy making due to the neglect of public agenda.As multiple bodies have more chances and accesses to the process of decision-making,and the public awareness of rights safeguarding is improving,and their discursive influences are enhancing,thus the values of constructing public agenda gradually stand out.As a typical“Not in My Backyard”environmental governance case,the formation,development and solution of the landfills in G city shows that the construction factors include risk perception,mass mobilization,collective protest and new agenda.Its evolving route:Media reports catalyze risk perception,then it goes to public agenda,and then the problem is solved.The means include pressure from the mass protest,the dynamic interaction between traditional media and internet media,attention from superior propels the opening of governing structure,thus building the public agenda and receiving the supervision of the public continuously.Meanwhile,the trigger mechanism of the agenda setting,the propaganda distribution mechanism and mass social culture and other factors influence decision making process,thus influencing decision output.In the future,stress should be put on the effect of public agenda on decision making,focusing on the“public participation”of the whole process of policy making,reshaping the establishment of democracy in policy science,hence realizing the guiding target of people-centered public policy research,and facilitating public value production.

关 键 词：环境治理 议程设置 公众议程 垃圾填埋场 

分 类 号：D63-3[政治法律—中外政治制度]