压力型科层制下基层政府精准扶贫政策的执行样态

The Forms of the Town Government's Targeted Poverty Alleviation Policy Implementation under the Pressure Hierarchical/Bureaucratic System

基层政府在我国精准扶贫中扮演着政策执行的重要角色。通过对17个乡镇的实地调研,发现基层政府在执行扶贫政策过程中往往呈现出"共谋""备考""规避"等执行样态,这本质上反映的是基层政府在"科层制"和"压力型体制"环境下的一种"正式权力的非正式运用"的权力运作方式。在压力型科层体制下,科层制的组织结构和自上而下的压力型体制往往使基层政府嵌入三种关系之中:压力型体制与科层制的关系,目标责任与资源匮乏的关系,参与式扶贫与政府主导型扶贫的关系。这三种关系的存在使基层政府在压力型体制、科层制和参与式扶贫的胶结状态下寻求政策执行的策略,并塑造着基层政府精准扶贫政策执行的样态。

The Town government plays an important role of policy executing in the process of targeted poverty alleviation. Based on field research in 17 town governments, This study has discovered that there exist behaviors-"collusion", preparation before "examine",and "deviation" when town government implement the anti-poverty policy. These kinds of implementation forms essentially reflect the town government’s power operation mode of formal power’s informal operation under the background of "pressure system", and "bureaucracy system". Under the pressure bureaucratic system the hierarchical organization structure and the top-down pressure system tend to embedding the town government into three kinds of relationships: the pressure system and the hierarchical bureaucratic system;target duties and scanty resources;and participatory poverty alleviation and government-dominant poverty alleviation. The existence of these three relationships makes the town government seek strategies of policy implementation policy implementation in the circumstance in which the pressure system, bureaucracy system and participatory poverty alleviation are interlocked. At the same time, this finally shapes the forms of the town government’s policy implementation.