征地政策中的“庇护式执行”:基于行动空间视角

“Asylum Execution”in Land Acquisition Policy:Based on the Perspective of Action Space

政策执行是反映政策成效的重要指标。在农村地区,政策执行更是检视基层治理成效的一面镜子。对粤北A市S镇H村征地政策执行过程所进行的实证调查研究表明,在征地政策执行过程中,村干部在对农民"三抢"违法行为的认定、对土地附着物的清点以及监督权的行使等方面,均表现出明显的"庇护式执行"行为逻辑。乡镇政府在结果导向和多种激励下,意图完成而且必须完成征地任务,但是受制于人手短缺和信息不对称,只能通过逆向依赖手段委托村干部代为执行,这为村干部的庇护行为留下了空间。被征地村民为获取高额经济补偿,借助熟人关系网络,以交换互惠的手段向村干部寻求庇护;身份属性模糊的村干部则采取"庇护式执行"策略,为村民谋取超出法定限度的利益,从而导致征地政策的执行出现偏差。只有从根本上消除产生"庇护式执行"行为的可能性,才能有效防止政策执行产生偏差。

Policy implementation is an important indicator of policy effectiveness.In rural areas,policy implementation is a mirror of grassroots governance.The article conducted an empirical investigation on the implementation process of land acquisition policy in S town H village of A city in northern Guangdong.The research shows that in the process of land expropriation policies,village cadres have demonstrated obvious"asylum-executive"behavioral logic on the identification of peasants’"three-robbing"illegal acts,the enumeration of land attachments and the exercise of supervision power.The township government intends to complete and must complete the land acquisition policy under the result-oriented and multiple incentives.However,due to the shortage of manpower and information asymmetry,the land acquisition policy can only be transferred to the village cadres for execution through reverse dependence.It left room for action for the asylum behavior of village cadres.For the consideration of obtaining high economic compensation,the land-expropriated villagers seek refuge for the village cadres by means of exchange of reciprocal means through the network of acquaintances.The village cadres with ambiguous identities adopt"asylum"implementation strategy to seek benefits beyond the limits of the law for the villagers,which ultimately led to deviations in land acquisition policy.In order to effectively correct the"asylum"behavior of village cadres,it is necessary to fundamentally block the possibility of"asylum execution"of village cadres,thus effectively preventing the occurrence of deviations in policy implementation.