What defines deservingness? Specifying the criteria for target groups constructions in public policy

As policies are rarely enacted universally for the entire population, an essential part of policy design is to decide which target groups are addressed by policy benefits or burdens, and which are not. For this, next to the power position of different groups, their ‘positive’ or ‘negative’ construction has proven to be essential – famously captured in the Schneider/Ingram typology of target populations (advantaged, contenders, dependents, deviants). While it is thus crucial to understand the processes of target group constructions, the specific criteria guiding these constructions have remained rather elusive. This article argues that the CARIN criteria developed in the welfare deservingness literature provide a clear analytical frame for understanding positive and negative target group constructions. By integrating the CARIN criteria with the Schneider/Ingram typology of deservingness, this article makes several contributions. Conceptually, it enriches the notion of deservingness within public policy research, and demonstrates the applicability of the CARIN criteria across different policy types. Empirically, the article presents a case study on regulatory policies, investigating target group constructions in Germany’s containment and vaccination policies during the COVID-19 pandemic. Thereby, the CARIN criteria – which have to date been used in public opinion research – are harnessed for meso-level policy research.