行政主导农业转型的实践逻辑与公共治理困境

Practical Logic and Public Governance Dilemma of Administrative Led Agricultural Transformation

制度性农业治理机制和规模化经营的路径依赖使得政策表达与实践之间存在错位,文章基于桂西南A镇的个案研究,试图从政府治理角度呈现规模化农业转型的实践逻辑与困境。研究发现,实践中的农业转型和农业治理并非遵循市场与社会的逻辑,而是表现出行政主导的逻辑,从而将嵌入性农业经营改造成脱嵌的规模化经营。基层农业转型的行政机制表现出多重逻辑——科层与运动的复合型运作、项目治理的行政发包逻辑以及行政“借道”社会关系网络。虽然行政主导农业转型快速实现了农业经营体系的重建,却在微观的乡村实体治理层面上导致非预期性后果和农业治理困境。在全面推进乡村振兴的新形势下,农业现代化和产业振兴应从过于强调规模化经营转向服务转型,从行政主导的逻辑转向回应乡村社会诉求,将农业现代化与乡村现代化作为一个整体协同推进。

The institutional agricultural governance mechanism and the path dependence of large-scale operation make a misalignment between policy expression and practice.This article takes the sugarcane industry and its transformation in Town A in southwestern Guangxi province as a case.Through qualitative research methods,we found that the practical agrarian change and agricultural governance don't follow the logic of"market domination&co-governance".The agricultural governance carried out cannot be explained by the programmatic administrative bureaucracy,however it presents an administrative-led state.The logic of the administrative-led agrarian change includes the complex administrative operation of bureaucracy and motive governance,the absorption of market power and capital by the administration,the administrative outsourcing logic of project governance,and the social network of administrative borrowing.At the macro level,the effect of administrative leadership is obvious;while at the interface of micro and rural entity governance,it has led to the unexpected consequences of the transformation of agricultural government and the dilemma of agricultural governance.Under the new situation of rural revitalization strategy and state governance modernization,it is necessary to shift from over emphasizing large-scale transformation to service transformation,from administrative leadership to responding to farmers’demands,and to improve the status quo of grassroots task based administration in top level design.