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民主从属于对共识的追求,谋求共识而又依赖共识。政策问题建构其实就是一个形成共识的过程,即形成关于社会问题的一致意见,从而确认需要通过政策手段来加以解决的问题。直到19世纪后期,政策问题建构基本上是一项政治活动,一直是在民主的途径中去达成共识的。进入20世纪后,随着政治与行政的分化,由行政部门做出的政策问题建构基本上是在科学的路径中进行的。科学本身就意味着共识,而且是具有霸权属性的共识。随着社会发展走进了高度差异化的阶段,无论是民主还是科学,在政策问题建构中所制造出来的“共识”都出现了经常性地导致政策问题误植的问题,从而说明以共识追求为宗旨的政策问题建构本身已经成为一个问题。所以,在新的历史条件下,应当把政策问题建构的关注点转移到参与者的行动上来,在承认与尊重参与者之间差异的基础上通过合作行动来完成政策问题建构。
Democracy is subordinate to the pursuit of consensus, seeking consensus and relying on consensus. The construction of policy issues is actually a process of consensus formation, that is, forming consensus on social issues so as to identify issues that need to be solved through policy measures. It was not until the latter part of the 19th century that the construction of policy issues was basically a political activity that was always reached through consensus on the path of democracy. After entering the 20th century, with the differentiation of politics and administration, the construction of policy issues made by the administrative departments is basically carried out in a scientific way. Science in itself means consensus, but also a consensus of hegemonic attributes. As social development has entered a highly differentiated phase, whether it be democracy or science, the issue of “consensus” created in the construction of policy issues has led to the frequent mistaking of policy issues, The construction of a policy issue aimed at consensus pursuit has become a problem in itself. Therefore, under the new historical conditions, we should shift the focus of constructing policy issues to the actions of participants and complete the formulation of policy issues through cooperative actions based on the recognition and respect of the differences among participants.