“干部下乡”背后的“政策落地”——基于“精准扶贫”中干部互动视角的分析

The“Policy Implementation”behind“Cadres Sent-down the Village”——Based on the Cadres Interaction Perspective in China’s Targeted Poverty Alleviation Program

各级政府和农村基层政权如何打破科层制的层级限制并开展互动是中国公共管理实践的热点问题。在国家精准扶贫实践中,为确保高度政治性的国家政策执行不走样,中央到县级政府纷纷派出干部参与农村基层扶贫工作。这些代表着上级政府意志的下派干部与村民自主选举的村干部之间的关系直接影响精准扶贫的政策绩效。本文通过对福建省三个村庄的案例分析发现,下派干部与村干部之间存在四种互动关系:合作、下派干部主导的妥协、村干部主导的妥协和对抗。下派干部所携带的资源、与村庄经济精英的关系以及派出机构的级别等的差异会影响双方的关系。因此,不同于以往改造当地干部的目标,精准扶贫中的下派干部建立了科层制之外村庄和派出机构的定向联系,并通过这种联系向基层农村政权提供技术、资金、人脉等资源支持,形成了国家对基层社会的“柔性干预”。

It’s a hot issue that how the governments at all levels and rural grass-roots governments break through the bureaucracy hierarchical restrictions and carry out interactions in China.In the practice of China’s Targeted Poverty Alleviation Program,in order to ensure that the correct implementation of highly political national policies,the various governments have sent cadres to participate in rural poverty alleviation.The relationship between sent-down cadres representing the will of the higher-level government and the village cadres independently elected by the villagers directly affects the policy performance of Targeted Poverty Alleviation Program.Through the cases studies in three villages of Fujian Province,this article finds that there are four dimensions between sent-down cadres and village cadres:cooperation,compromise led by sent-down cadres,compromise led by village cadres,and confrontation.The resources carried by the sent-down cadres,the relationship with the village gentries,and the administrative level of the dispatched agency could affect the relationship between two sides.Therefore,unlike the goal of remoulding local cadres in the past,sent-down cadres in Targeted Poverty Alleviation Program established directional links between villages and dispatched agencies,and provided such resources as technology,funds,and official intelligence to rural grass-roots governments,which can be identified as the“flexible intervention”.