基层官员的身份困境与乡村治理中的政策执行变异

Identity Dilemma of Street-level Bureaucrats and Policy Implementation Variation in Rural Governance

乡村治理的复杂性造就了基层政府公共政策过程的独特场域。H县火化政策执行经历了政府运动式治理、村民消极软抵抗到政策隐性终结公开化的变异过程。这一过程演绎着府际关系、政府与社会关系、基层官员与乡村共同体关系相互影响的复杂场景。政策细化中的乡村文化融入是基层政府政策执行的必要条件。一旦缺失将引致基层官员的身份困境,成为乡村治理中政策执行变异的决定因素。协商民主的议事规则有助于通过增进公民参与,将乡村文化习俗融入政策细化,促成正式制度与非正式规则、习俗的互恰,为乡村治理中的政策执行奠定基础。

The complexity of rural governance leads to a unique field of policy process in fundamental government. The cremation policy implementation in County H has undergone three stages as follows： govemment＇s Campaigning governance, villagers＇ negative soft resistance and the open of hidden policy end, which can be conceptualized as one of policy implementation variations. This process reflects the relations between the governments, between government and society and between street level bureaucrats and rural community. The policy implementation in rural governance needs to be redesigned based on the rural characteristics; otherwise it will lead to identity dilemma of the street - level bureaucracy, which becomes the determinants of policy implementation variation in rural governance. The rules of deliberative democracy can help promoting the citizen participation and combining the rural culture with policy redesigning, which can improve the exact embedding between formal and informal rules and lay a good foundation for policy implementation in rural governance.