본 연구는 Schneider&Ingram의 대상집단의 사회적 형성이론의 틀을 중심으로 격발기제, 이슈확장모형 및 지지연합이론과의 결합을 통하여 수정･보완함으로써 정책변화를 설명하는 보다 포괄적인 이론 모형을 제시하고자 하였다. 또한 구축된 이론 틀을 성매매특별법에 적용하여 보았다. 성매매 사례를 분석하여 본 결과, 대상집단인 성매매여성의 사회적 인식이 윤락녀인 성매매 범죄자에서 가부장적인 사회구조의 희생자인 성매매 피해자로 전환됨에 따른 정책의 변화를 확인하였다. 즉, 성매매여성이 과거의 윤락행위방지법에서는 이탈집단으로 주로 처벌의 대상이었으나, 성매매특별법에서는 의존집단으로 분류됨으로써 사회적 구제의 손길이 필요한, 정부 정책을 통하여 보호를 받아야 하는 대상으로 전환된 것이다. 이것은 대상 집단의 정체성에 대한 사회적 형성을 포괄하는 역동적인 과정을 통하여 기존의 정책이 다른 성격의 정책으로 변한 것을 보여주고 있다. [주제어: 대상집단, 사회적 형성, 정책변화]

The Transformation of Social Perception on Target Population and Policy Change Myeonghwan Kim & Ahn, Hyug-keun Abstract This study provides a comprehensive theoretical model to explain policy changes. The study extends the social construction theory of target populations proposed by Schneider and Ingram, by adding triggering mechanism, agenda-building model, and advocacy coalition theory. The study applies the theoretical model to a policy case that covers the enactment of a new law to crack down on prostitution. The results show that a policy change occurs as a social perception on the prostitute, as the perception of the target population has transformed a criminal into a victim marginalized by a traditional patriarchal system in Korean society. This implies that while a prostitute was the subject of punishment under the Prostitution Prevention Act in the past, they are nowto be categorized as a dependent who is supposed to be protected and supported by government policies, under the new Special Act on Prostitution. It demonstrates that the existing policy is likely to change into a different one in nature through a dynamic process that socially constructs the identity of the target population. Key words: target populations, social construction, policy change

The Transformation of Social Perception on Target Population and Policy Change Myeonghwan Kim & Ahn, Hyug-keun Abstract This study provides a comprehensive theoretical model to explain policy changes. The study extends the social construction theory of target populations proposed by Schneider and Ingram, by adding triggering mechanism, agenda-building model, and advocacy coalition theory. The study applies the theoretical model to a policy case that covers the enactment of a new law to crack down on prostitution. The results show that a policy change occurs as a social perception on the prostitute, as the perception of the target population has transformed a criminal into a victim marginalized by a traditional patriarchal system in Korean society. This implies that while a prostitute was the subject of punishment under the Prostitution Prevention Act in the past, they are nowto be categorized as a dependent who is supposed to be protected and supported by government policies, under the new Special Act on Prostitution. It demonstrates that the existing policy is likely to change into a different one in nature through a dynamic process that socially constructs the identity of the target population. Key words: target populations, social construction, policy change

Key words: target populations, social construction, policy change