名实分离或名实相符:双重约束下贫困地区基层政府培育农业产业的行动逻辑

Separation or conformity of name and reality:The action logic of grassroots government cultivating agricultural industry in poor areas under double constraints

贫困地区基层政府在培育农业产业的行动中普遍且长期存在着差异化现象,即名实分离与名实相符并存。这一现象是基层政府在组织内外情境双重作用下理性选择的结果。在试点性压力型体制引导的组织内情境下,贫困地区基层政府在培育农业产业中表现出了强烈的发展主义特征。在具体执行过程中,基层政府会依据组织外情境要素灵活调整既有行动策略。在组织外情境较强的村庄,基层政府会由全面主导者转变为辅助者和协调者,政府与多元主体良性互动保证了农业产业培育契合市场需求,形成了名实相符现象。在组织外情境较弱的村庄,基层政府会延续行政主导的方式,但因为忽略了各个乡村的差异性致使政策执行效率比较低,形成名实分离现象。在普惠性压力型体制引导的组织内情境约束与作用下,贫困地区基层政府只需要对照上级政府的政策标准完成任务即可,追求稳定成为其首要目标。在组织外情境较弱的村庄,基层政府会继续延续“稳定优先”的行动策略,形成名实分离。与之相反,对组织外情境较强的村庄,基层政府则会由稳定优先转向更具发展主义特征的策略,政策执行结果与政策目标之间的一致性,出现名实相符现象。

There is a widespread and long-term phenomenon of differentiated results in the actions of grassroots governments in poor areas to cultivate agricultural industries,that is,the separation of name and reality coexist with name match.This phenomenon is the result of rational choice of the grassroots governments under the dual role of internal and external situation.In the context of the organization guided by the pilot pressure system,the grassroots governments in poor areas have shown strong developmentalist characteristics in cultivating agricultural industries.In the specific implementation process,the grassroots government will flexibly adjust the existing action strategies according to the external situational elements.In villages with strong extra-organizational circumstances,the grassroots government will change from a comprehensive leader to an assistant and coordinator,and the positive interaction between the government and multiple subjects ensures that the cultivation of agricultural industry meets the market demand,forming a phenomenon of matching the name and reality.In villages with weak extra-organizational situation,the grassroots government will continue the administrative-led approach,but because it ignores the differences of each village,the efficiency of policy implementation is relatively low,forming a phenomenon of separation between name and reality.Under the constraints and effects of the organization guided by the inclusive pressure system,the grassroots governments in poor areas only need to complete the tasks according to the policy standards of the superior government,and the pursuit of stability has become their primary goal.In villages with weak extra-organizational situation,the grassroots government will continue to continue the action strategy of“stability first”,forming a separation in name only.In contrast,for villages with strong external situation,the grassroots government will give priority to the strategy with more developmental characteristics instead of stability,and the consistency between the results of policy implementation and the policy objectives will appear to be consistent in name and reality.