精准扶贫政策的分级落实机制及其基层实践困境

Hierarchical Implementation Mechanism in Policy of Targeted Poverty Alleviation and Its Practical Dilemma at Grassroots Level

打赢脱贫攻坚战,关键在落实精准扶贫政策。目前,精准扶贫政策在实践中形成了分级落实的制度安排,中央政府、省级政府、基层政府和村民的利益诉求并不完全一致,各自遵循着不同的行动逻辑,使政治机制、行政机制和治理机制共存于政策落实的过程中。行政机制意味着地方政府只会遵循官僚制的惯性逻辑,将精准扶贫从一个宏观政治层面上的战略问题转换成为一个官僚体制内部行政层面的政策执行问题,按照事本主义的原则落实政策;治理机制反映出村庄场域中不同利益参与主体在贫困户指标的分配中遵循着乡村逻辑,影响了扶贫政策的落地;行政机制与治理机制间的内在紧张关系,造成形式主义在基层行政中的泛滥,使政策呈现出"悬浮"状态。这促使中央政府启用政治机制,发起运动型治理,将"行政问题再政治化"以克服官僚体制的内在弊病,推进政策落实。受此影响,省级政府只得调整、修订政策,而政策的变动又加重了地方政府执行政策以及进行贫困治理的难度,这构成精准扶贫政策陷入基层实践困境的内在制度逻辑。

Implementation of targeted poverty alleviation policy is the key to winning the battle against poverty.So far,targeted poverty alleviation policy has formed institutional arrangement of hierarchical policy implementation.The interests of central government,provincial governments,grassroots governments and villagers are not identical.Following different action logic,they make political mechanism,administrative mechanism and governance mechanism coexist in the process of policy implementation.Administrative mechanism means that local governments only following an inertial logic of bureaucracy make targeted poverty alleviation strategy transformed from a strategic issue at a macro level to a policy implementation issue at an administrative level within bureaucracy,and carry out policy obeying the event oriented principle;governance mechanism implies that different stakeholders in village domain follow the rural logic during the process of quota allocation for identifying poor households,which affects the implementation of targeted poverty alleviation policy;the inner tension between administrative and governance mechanism leads to unchecked spread of formalism in administration at grassroots level,which makes policy＂levitated＂（the implementation of policy has not reached the goal）.This urges central government to start political mechanism and launches campaign styled governance that overcomes the inherent disadvantages of bureaucracy and advances policy implementation via repoliticization of administrative issue.Affected by this,provincial governments have to update and modify the policy while the change of policy increases difficulty of poverty reduction and local governments’ carrying out policy.This,consequently,forms an internal institutional logic that has thrown targeted poverty alleviation policy into the dilemma of practice at grassroots level.