This paper aims to understand coalition building between national and international actors in the context of an emerging subsystem. In applying the Advocacy Coalition Framework to the case of Uruguay, where a new field of social policy – the National Care System – was introduced in 2015 after a process involving different national actors from academia, civil society, politics, and administration, but also United Nations agencies, the paper explores the role of these international organizations in coalition building, and examines how a dominant coalition of national and international actors shaped the development of the new system. Using interview data and documents, the findings suggest that the involvement of international organizations in the coalition was based on shared beliefs and personal and institutional relationships. While powerful opposing coalitions were absent due to the nascent nature of the subsystem, the dominant coalition was able to influence the policy’s introduction based on their beliefs regarding gender equality and rights.

本文旨在了解新兴子系统背景下国家和国际参与者之间的联盟建设。在将倡导联盟框架应用于乌拉圭的案例中，该国于 2015 年引入了一个新的社会政策领域——国家护理系统——经过了学术界、民间社会、政治和行政部门等不同国家行为者的参与，而且还包括联合国国家机构，本文探讨了这些国际组织在联盟建设中的作用，并研究了国家和国际行为者的主导联盟如何塑造新体系的发展。通过访谈数据和文件，调查结果表明，国际组织参与联盟是基于共同的信仰以及个人和机构关系。虽然由于该子系统的新生性质而没有强大的反对联盟，但主导联盟能够基于其对性别平等和权利的信念影响政策的出台。