大众传媒在公共事务管理中的作用

摘要：公共事务管理的目的是维护公共利益，促进社会协调发展。

在现代社会，大众传媒自身的功能特点所体现出的公共性特征使它与公共事务的管理间存在着内在的关联，这种关联正是传媒因素能够对公共事务管理活动产生影响的根本动因。

把大众传媒建构成社会领域的“公共空间”，是充分发挥我国大众传媒在公共事务管理中的作用的有效途径。

关键词：大众传媒公共事务管理作用大众传媒与公共事务的管理部门在维护公众利益、推动社会发展这一价值取向上的契合之处以及大众传媒的传播活动与公共事务管理部门的管理活动在信息传播机制、社会整合机制方面存在的互补现象，是两者发生内在联系的关节点，而二者之间的内在关联正是传媒因素能够对公共事务的管理活动产生影响的根本动因。

大众传媒自身的功能特点以及它与公共事务管理的内在联系，不仅是传媒因素能够对公共事务的管理活动产生影响的根本动因，也决定和影响着传媒在公共事务管理中作用的发挥。

预警作用对公共事务的管理而言，大众传媒的预警作用通常体现在对社会生活中出现的异常情况，特别是对涉及公众的生命、财产、安危的紧急突发情况，作出快速反应和及时报道，以引起公众的警惕或帮助人们了解突发事件和真实情况，以便采取相应的对策。

2003年SARS危机之后，我国传媒对此次危机中主流媒体长时间的集体失语失真，造成传媒预警作用的彻底失灵，对疫情的扩散蔓延产生了直接影响的后果进行了深刻反思，在突发事件包括危机事件的报道方面进行了重大改革，做到了信息发布的及时、真实和公开。

典型的是2008年春夏之交我国主流媒体对震惊世界的“5?12”汶川地震所作的连续32天的现场直播报道。

事实表明，信息的及时、真实和公开，是任何负有社会责任的大众传媒所应该葆有的信仰与原则，及时、真实和公开地报道新闻，可以成为社会抵御突发性社会恐慌的预前反应，并且，从效率的角度看，这样的预前反应是成本最小的控制措施。

正如一位学者所言：如果一个社会的真实情况，尤其是关涉公众利益，特别是公众的切身利益的负面真实情况被隐瞒住，那么这个社会就会很危险，整个国家就仿佛被放在火山口上。

任何社会都不可能避免天灾人祸，但是却有可能依靠媒体迅捷的信息传播所产生的预警作用减少灾难带来的损失。

向社会提供真实可靠的公共信息是政府和媒体共同的社会责任。

为此，政府在公共事务的管理过程中，一方面应充分尊重公民的知情权，增加公共信息传播的透明度，畅通信息传播渠道；另一方面，应充分认识大众传媒在危机管理中的预警作用，及时发现危机存在的前兆，及早采取预前措施，尽量把突发事件造成的不利影响减少到最低限度。

议程设置作用议程设置理论是在李普曼的“拟态环境”以及拉斯韦尔关于大众传播的“环境监视功能”概念的基础上，通过实证研究提出的一个理论假说。

该理论认为大众传播具有一种设定社会公共事务“议事日程”的功能，新闻传媒的新闻报道和信息传播活动以赋予各种“议题”不同程度的显著性的方式，影响着人们对周围世界“大事”及其重要性的判断。

新闻传媒选择或突出报道的某些内容会受到受众特别的关注。

这一理论暗示了这样一种媒介观，即传播媒介是可以“重构环境”的机构，传播媒介根据自己的价值观和报道方式，从现实环境中选择出它认为重要的部分或方面进行加工整理，赋予一定的结构秩序，然后以“报道事实”的方式提供给受众。

在现实生活中，我们可能会注意到这样一个现象：社会问题层出不穷，但为什么某些潜在问题突然显性化，在社会上掀起轩然大波，并进而直逼决策层；相反，另一些问题却始终寂寞无声，最后不了了之。

对比两种迥然相异的情形，我们可以发现大众传媒的议程设置起了不可替代的作用。

一般来说，对于社会公众而言，不理想的、不规范的、不能令人满意的社会现实状态虽然是客观存在的，但它要成为政府公共政策制定与执行的对象，还必须经过一个认识上的逻辑发展过程。

这就是社会问题→公共社会问题→公共政策问题。

社会问题转化为公共社会问题的标志是出现公意性诉求。

而当公共权力主体意识到社会公共问题已经妨碍整体社会发展，充分了解公众的公意性诉求并认同这种公众的政策诉求时，公共问题就会变成公共政策问题。

而大众传媒的议程设置对推动这个认识上的逻辑发展起了关键的作用。

一方面，由于在现代社会大众传媒最大限度地接触信息本身，最大范围地接触社会公众，所以对于社会中出现的社会问题，尤其是有一定影响的突发事件，首先作出强烈反应的是大众传媒。

另一方面，由于大众传媒信息传递的公开性、直接性、迅速性，它能快速把少数人发现和提出的社会问题及对政策的期望在社会上广为传播，它对社会问题或某一突发事件大规模地连续性地加以报道，往往会引起社会公众的广泛关注。

大众传媒不仅对事件本身进行客观报道，而且会加以评论，以引导公众对事件性质的认知程度，引发公众对社会深层次问题的思考，不断提高公众对政策问题的认知度，这就使媒介议程转化成了公众议程。

而公众议程大多是涉及公众普遍关心的热点问题，因而会呈现社会舆论的“焦点效应”。

而“焦点效应”又往往形成强大的舆论压力，就会促使政府接受来自公众的愿望和要求，进而对公共政策作出相应的调整。

这正是大众传媒的议程设置作用对公共事务管理活动产生影响的主要原因。

舆论监督作用我国党报有自己的舆论监督传统，即开展批评与自我批评。

改革开放后，社会的政治民主化程度有了很大提高，受众的参与意识普遍增强，为适应这一新情况，我国新闻传媒开始就改革开放中的许多重大政策问题进行广泛的讨论，发表各种不同意见，为政府决策提供了参照，也提高了政府决策的透明度。

同时，受众对社会领域中不良现象的批评也常常见诸媒介。

由于媒介对社会信息具有放大的功能，加之媒介在我国具有其他社会机构所不具备的社会公信力，受众意见一旦被媒介刊播，在某种程度上就有了类似舆论的影响力。

中央电视台“新闻调查”、“中国质量报告”等栏目受到观众的普遍欢迎，重要原因之一是这些栏目较好地发挥了媒介舆论监督的功能。

而且随着民众表达利益和要求的权利开始合法化，大众传媒作为公众的代言人，在形成政府与民意之间的良性互动中发挥着重要作用，进行舆论监督的社会氛围有了很大改变，在一定层次上突破了其固有的一些局限性，出现了跨层次、跨地区、跨类型媒体舆论监督互动的现象。

Abstract: the purpose of public affairs management is to maintain the public interest, to promote coordinated development of society. In the modern society, the functions and characteristics of the mass media itself reflects the characteristics of publicity is to make it with the inner link between the management of public affairs, this association is media factor to the ultimate cause of impact on public affairs management activities. The mass media to build a "public space" in the field of society, is give full play to the role of mass media in public affairs management in our country's effective way.Keywords: mass media public affairs managementMass media and public affairs management in the maintenance of public interest, promoting the social development value orientation on the fit place, and the mass media dissemination activities and management of public affairs management department activities in information dissemination mechanism, social integration mechanism of complementary phenomenon, is the inner link of the key points, and the inner relation between them is the media factors can influence on the public affairs management activities of the fundamental motivation. The functions and characteristics of the mass media itself and its inner link, and public affairs management is not only the media factors can influence the management of public affairs activities, the fundamental dynamics also determine and influence the media play a role in the management of public affairs.Warning roleFor the management of public affairs, the warning role of mass media is usually reflected in the abnormal situation arising from the social life, especially for involving the public life and property and safety emergency situation, make a rapid response and timely report, for the benefit of the public or to help people understand the emergency and real situation, in order to take corresponding countermeasures.After the SARS crisis in 2003, China's media to the crisis in the mainstream media for a long period of time distortion, collective aphasia caused by media complete failure of the role of early warning, the spread of the spread of epidemic diseases has a direct influence the consequences of the deep reflection, in emergencies including crisis coverage has been reformed gigantically, do the timely, true and open information release. Typical is the mainstream media in China since the turn of the spring and summer of 2008 to the "5? 12" wenchuan earthquake shocked the world by 32 consecutive days of live coverage.The fact that the information timely, true and open, is essential for any social responsibility of mass media should keep faith and principle, timely, true and openly to report the news, can become a society to resist the advance of the sudden social panic before reaction, and from the perspective of efficiency, this preliminary response is the smallest cost control measures. As a scholar said: if the truth of a society, especially the matter of public interest, especially the immediate interests of the public's negative live true concealment, so this society will be very dangerous, the whole country will seem as if they are on the crater. Any society can not avoid the natural and man-made, but is likely to rely on the media fast transmission of information generated by the warning role to reduce disaster losses.To provide reliable public information is a common social responsibility of the government and the media. Therefore, the government in the process of the management of public affairs, on theone hand, should fully respect the citizens' right to know, to increase the transparency of public information dissemination, unimpeded information transmission channels; On the other hand, should fully understand the warning role of mass media in crisis management, timely show early signs of crisis, preliminary measures as early as possible, try to reduce the adverse impact of the incident to the minimum.The agenda-setting functionAgenda-setting theory is "mimetic environment" in lippmann and lars weir of mass communication, on the basis of concept of "environmental monitoring functions", through empirical study, we propose a theoretical hypothesis. The theory is that mass communication is a kind of set the function of social public affairs "agenda", the news media of news and information dissemination activities to give various "issues" degree of significance, influence the people around the world "event" and its importance. The news media choices or prominence to some content will be audience special attention. This theory suggests that such a concept of media, the media can be "refactoring environment" institutions, media according to their own values and way of reporting, selected from the realistic environment and think it important part or aspect of the processing and finishing, to give a certain structure order, and then provided to the audience in the form of "reporting the facts".In real life, we may have noticed a phenomenon: social problems emerge in endlessly, but why some potential problem suddenly be innovated, provoked uproar in the community, and then matches the decision-makers; On the contrary, some other problems but lonely silent, finally go away. Comparing two quite different situations, we can find that mass media agenda-setting plays an irreplaceable role.In general, for the social public, not ideal, non-standard, unsatisfactory state of social reality is objective existence, but it will become the object of public policy formulation and implementation, also must go through an understanding on the logic of the development process. This is the social problems and public social problems and public policy issues. Social problem is transformed into public is a sign of social issues in general will sex appeal. And when the public power subject consciousness to the social public problems have hinder the overall social development, fully understand the general will of the public sex appeal and agree with this kind of public policy, public will become a public policy problems. And the mass media agenda setting to promote the understanding on the logical development played a key role.On the one hand, because of the mass media in modern society maximum contact information itself, contact the social public to the maximum range, so for the social problems arising from the society, especially have a certain influence of emergencies, first make a strong reaction is the mass media. On the other hand, because of the mass media information openness, directly and rapidly, it can quickly took a few social problems and put forward by the discovery and expectations of policy widely spread in the society, its social problems or an emergency to report on a large scale continuity, often can cause the extensive concern of the public.The mass media is not only an objective report on the event itself, but also comment, to guide the public's cognition to the nature of the event, caused deep thinking about the problems of the public to society, to improve public awareness on policy issues, which makes the media agenda into the public agenda. And the public agenda is mostly involves the widespread public concern about the hot issues, and therefore can present the effect of "focus" public opinion. Effect "and"focus and tend to form the strong pressure of public opinion, would have prompted the government to accept from the public's wishes and requirements, and make corresponding adjustment to public policy.This is what mass media agenda-setting function influence on the public affairs management activities of the main reason.The supervision of public opinion roleChina's communist party newspaper has its own traditional supervision by public opinion, that is, to carry out criticism and self-criticism. After the reform and opening up, social political democratization degree had the very big rise, audience participation generally increased, in order to adapt to the new situation, the news media in China in the beginning of reform and opening up many important policy issue widely discussed, different opinion, provided reference for government decision-making, and improve the transparency of the government decision-making. At the same time, the audience of adverse phenomena in the field of social criticism is often in the media. Because the media has the function of amplification of social information and media in our country with other social institutions that the social credibility, audience opinion once they publish or broadcast media, to some extent have similar to the influence of public opinion.CCTV "news investigation", "China quality report" and other columns is well received in the audience, one important reason is that these columns better play to the function of media supervision by public opinion. And legal as the requirement of people to express their interests and rights, the mass media as a spokesperson for the public and the formation of benign interaction between the government and the public opinion plays an important role, and carries on the supervision by public opinion of the social environment has changed a lot, to a certain level, broke through some of its inherent limitations, appeared across different administrative levels, cross-regional, type the phenomenon of media supervision by public opinion.。