“捆绑式政策执行”:失地社保与征地拆迁

“Implementation Through Bundling Policy”:“Land for Social Security”and“Land Requisition and Relocation”

本文研究基层政府在征地拆迁过程中开展的"捆绑式政策执行"这一实践,即通过捆绑执行土地征收和失地社保两方面的政策,实现对拆迁反对者的行政吸纳,从而推动征地拆迁的进程。本文认为,"捆绑式政策执行"在实践中能否实施,有赖于三个前提条件:(1)两类政策在执行上可以建立继时性关联,即一项政策(A)执行后,另一项相关政策(B)才会被启动执行;(2)在B政策(如失地社保)的支持者与A政策(如征地拆迁)的反对者之间建构起利益关联,使前者利益的实现要以后者放弃反对为前提;(3)建构的利益关联导致集体内部产生分化,使B政策的支持者与A政策的反对者之间形成张力,并驱使前者去约束后者的反对行为。通过"捆绑式政策执行",基层政府得以利用一项政策的吸引力推进另一较难执行之政策的进程。

This research explores the practice of"bundling policy implementation"during the"land requisition and relocation"pushed forward by grassroots governments,that is local authorities advance this process through bundling the policies of"land for social security"and"land requisition and relocation,"using the attractiveness of the former policy to absorb the resistance against the latter one in an administrative way.The paper argues that"bundling policy implementation"can take place under the following three conditions:(1)Two types of policies(say Policy A and Policy B)could be bundled together,with the implementation of Policy B based on the completion of implementing Policy A;(2)The interests of Policy B(e.g.,"land for social security")supporters are rendered associated with those of Policy A(e.g.,"land requisition and relocation")opponents,and realization of the former group’s interests is made impossible if individuals of the latter group are reluctant to give up their resistance;(3)The interest association constructed leads to differentiation of a collectivity and conflicts between Policy B supporters and Policy A opponents,and to realize their interests,Policy B supporters have great incentives to take actions and persuade Policy A opponents to back down.With the approach of"bundling policy implementation",the local authories could push forward accomplishment of one policy with the attractiveness of another policy.