县乡干部战略性群体:结构与政策效应——基于一项公共政策的个案研究

County and Township Cadres as Strategic Group:Structure and Policy Effects—Based on a Case Study of Public Policy

县乡干部的政策行为是理解中国农村治理的重要视角。运用战略性群体这一理论框架,从一项公共政策在地方行政层级推进中,分析县乡干部群体的权力结构与公共政策效应的关系问题。县乡干部由于在群体目标构建和战略行动协调的自主性不同,分化为战略精英与外围战略成员,在群体内部等级之间形成"支配—依附"非均衡权力结构。资源向上依赖、等级权威价值认同、社会流动筛选和等级权威复制等机制共同维系了县乡干部群体的等级秩序。在战略群体外部,企业利用结构化机制与县乡干部代表的地方政府利益联结,消解了政策的公共性,共享了政策收益。面对政企结构化后结成的强势地位,农民作为政策的主要目标群体,其利益诉求被选择性忽略。在农村社会中"政府""资本""民众"之间呈现出非均衡的权力结构。县乡干部群体的权力实践就是在一项项公共政策制定和执行中实现,并在现实层面上构成了农村社会治理的图景。

Policy behavior of county and township cadres provides an important perspective to understand China rural governance.In this paper, the theoretical framework of strategic groups was used to analyze the relationship between power structure of county and township cadres group and public policy effects from advancing a public policy at the local administration level. According to different autonomy of group target construction and coordinate strategic actions, county and township cadres could be divided into strategic member and peripheral members of the elite. A 'Dominate-depend', non-balanced power structure was formed among group grades.Upward resource dependence, level authoritative value identity, social mobile screening and level authoritative copy maintained the hierarchical order of county and township cadres groups together. Outside strategic groups, companies using structuring mechanisms established links of interest with local government represented by county and township cadres. The behavior of companies and government diminished the publicity of policy and its shared benefits. Facing the government and enterprises structured to form a privileged position, the demands of farmers as the main policy target group were selectively ignored. In rural societies, unbalanced power structure was formed among government, capital and people. Power practice of county and township cadres was achieved in public policy formulation and implementation. On the practical level, a picture of rural social governance was constituted.