Policy Frameworks

This section applies two policy frameworks discussed in class to analyze the design of the Student Assistance Program (SAP) and the assumptions underlying the policy. Specifically, the Social Construction of Target Populations and Theory of Change frameworks are used to examine how SAP defines and supports at-risk students, and how the program is intended to produce positive student outcomes.

Policy Framework: Social Construction of Target Populations

What is the social construction of target populations?

Schneider & Ingram’s Social Construction of Target Populations framework explains how public policies define and respond to different groups based on how they are socially perceived and on the political power they hold. According to this framework, policymakers tend to categorize target populations as advantaged, contenders, dependents, or deviants, and these labels influence how policies are designed. Groups viewed more positively are more likely to receive support or benefits, while those viewed negatively may face stricter rules or punishment. As a result, social perceptions play a significant role in shaping policies.

                     ResearchGate, Social Constructions and Political Power:

               Types of Target Populations 

What is SAP’s target population classified as?

The Student Assistance Program (SAP) is designed to support K–12 students. Using Schneider and Ingram’s Social Construction of Target Populations framework, SAP’s target population is best classified as dependents. The students served by SAP are viewed as vulnerable and politically weak, as minors struggling with substance use, behavioral issues, or mental health challenges often lack the ability to advocate for themselves. Therefore, the students require services that provide care and support rather than harsh punishment and discipline.

 

Policy Design Analysis: Social Construction of Target Populations

SAP’s construction of its target population has directly shaped how the policy is designed and implemented within schools. Since students are classified as dependents, the program emphasizes care, support, and early intervention instead of punishment. SAP’s referral process focuses on identifying the underlying causes of a student’s behavioral or academic challenges. Rather than punishing students for behavioral misconduct or poor academic performance, SAP aims to address underlying mental health concerns and substance use issues that may be contributing to these struggles.

However, if students were categorized as deviants instead of dependents, the implementation of the SAP program would be significantly different. The treatment and perception of SAP participants would likely shift away from care and support toward discipline and punishment to correct student behavior. Instead of focusing on underlying mental health or substance use concerns, the program would prioritize rule enforcement and behavioral control. This contrast shows why the Social Construction of Target Populations framework is important, as the way a group is categorized influences how a policy is designed and how the people it serves are treated and affected.

Policy Framework: Theory of Change 

What is the theory of change?

The Theory of Change is a policy analysis framework that explains what a policy is intended to do and how it is expected to produce certain outcomes. It breaks a policy down into key components, including the problem it addresses, the actions taken to address it, and the short- and long-term goals it aims to achieve. The framework also highlights the assumptions that policymakers make about how and why a policy is expected to work.

Perkins, Theory of Change, 2025.

Problem (SAP):

SAP addresses the problem of students struggling with mental health, substance use, behavioral challenges, or any “non-academic barriers” that interfere with their academic performance and learning.

The Social Construction of Target Populations helps explain how this problem is understood and addressed. Since students struggling with mental health, substance use, and behavioral challenges are socially constructed as dependents, the problem is framed as one that requires support and intervention rather than punishment.

 

Solution (SAP):

The solution SAP provides is a school-based early-intervention support system that identifies students who are struggling and connects them to the appropriate resources. Through referrals from teachers and staff, SAP teams assess students’ needs and connect them with school-based supports or community services related to mental health, substance use, or behavioral concerns.

Rather than responding to these challenges through discipline, SAP focuses on support, prevention, and care. By addressing non-academic barriers early and coordinating services for students and families, SAP aims to improve the students’ well-being, strengthen academic performance, and reduce the risk of long-term negative outcomes.

 

 

 

What are “non-academic" barriers?

According to the Student Assistance Center at Prevention First, non-academic barriers include:

• school adjustment problems

• trauma generated at school or at home

• attendance and dropout problems

• mental health issues, including depression or suicide issues, self-injury, stress/anxiety-related issues, and grief

• physical/emotional abuse

• substance abuse

• gender issues

• family issues, including dissolution, homelessness or displacement, family member mental health and substance use disorders, and relationship difficulties

• parent or other family member incarceration

• delinquency and involvement with the juvenile justice system

• teen pregnancy

Short Term Goals

  • Identify students who are struggling with mental health, substance use, or behavioral concerns as early as possible.
  • Understand the underlying causes of a student’s academic or behavioral challenges rather than responding only to surface-level issues.
  • Provide timely support through school-based services or referrals to community resources.
  • Improve students’ emotional well-being and ability to cope with challenges that affect learning.
  • Improve students’ academic performance, attendance, and classroom behavior.
  • Reduce the need for disciplinary action by addressing issues before they escalate.

Long Term Goals 

  • Support students’ long-term academic success by helping them stay in school and move toward graduation.
  • Reduce future substance use and risky behaviors by addressing concerns early and consistently.
  • Strengthen students’ long-term emotional well-being and their ability to manage challenges inside and outside of school.
  • Build strong, lasting connections between schools, families, and community support services to provide ongoing support for students.
  • Foster a school environment that prioritizes prevention, early support, and student well-being rather than punishment.

 Assumptions 

  • Addressing non-academic barriers improves academic success.

SAP is based on the assumption that students cannot succeed academically if challenges like mental health concerns, substance use, or behavioral issues are not addressed. The policy assumes that improving a student’s well-being will also improve their attendance, focus, and overall academic performance.

  • Early identification and support lead to better student outcomes.

SAP is based on the assumption that identifying student concerns early, before they become more serious, leads to better outcomes. By responding to the first signs of academic, behavioral, or emotional changes, the program aims to prevent problems from escalating into more severe issues such as ongoing academic failure, substance dependency, or repeated disciplinary action.

  • Students benefit from support rather than punishment.

The policy is based on the belief that punishment alone does not address the root causes of student struggles. Instead, SAP assumes that students are more likely to improve when they are supported through guidance, counseling, and access to appropriate services. By focusing on understanding what students are dealing with rather than simply disciplining them, SAP aims to help students make lasting changes and succeed both academically and personally.

  • Schools cannot address challenges related to mental health and substance abuse among students alone.

SAP assumes that schools cannot fully address complex mental health and substance use issues on their own. While schools can identify concerns and offer initial support, they often lack the time, resources, or specialized training to meet every student’s needs. Because of this, the policy emphasizes working with families and community-based service providers. By connecting students to outside counseling, treatment programs, and support services, SAP ensures they receive support beyond what schools can provide.