政策何以塑造政治:从精准扶贫到乡村振兴的乡村政治变迁

How Do Policies Shape Politics?Rural Political Changes from Targeted Poverty Alleviation to Rural Revitalization

本文从外部的“国家与乡村关系”和内部的“乡村自治秩序”两方面来理解乡村政治及其变迁,借助政策反馈理论的核心观点“政策塑造政治”搭建“政策-政治”分析框架,从政策过程角度阐释精准扶贫和乡村振兴两个时期的乡村政治及其变迁过程与机理。本文研究表明,反映不同时期国家与乡村关系的政策安排会引起乡村社会内部政治活动参与方式的改变。受政策的解释效应、资源效应和学习效应影响,国家行动者和乡村行动者的认知、能力与行为发生转变,进而改变国家力量和自治力量对乡村社会的作用方式,二者分别塑造了新的国家与乡村关系和新的乡村自治秩序,最终呈现为国家与乡村关系和乡村自治秩序的更迭,即政策过程重塑了乡村政治:由取消农业税时期的“悬浮给予”变迁为精准扶贫时期的“精准分配”,又由精准扶贫时期的“精准分配”变迁为乡村振兴时期的“融合发展”。“政策-政治”分析框架所揭示的乡村政治变迁机理表明,在开展有关乡村的政策分析和政治分析时,既要关注政治对政策的影响,也不能忽视政策对政治的反作用,既要关注政策安排对乡村发展所产生的直接效应,更要关注政策过程对乡村政治所产生的重塑效应,以实现政策与政治的深度良性互动。

The paper comprehends rural politics and its changes from two perspectives:external"state-rural relation"and internal“rural autonomous order”.It constructs an analytical framework of“policy-politics”by utilizing the core viewpoint of policy feedback theory,and explains the rural politics and its evolution process and mechanism in the two periods of targeted poverty alleviation and rural revitalization from the perspective of policy process.The analysis indicates that the policy arrangements that reflect the state-rural relation in different periods lead to changes in the participation modes of rural internal political activities.When state actors and rural actors jointly engage in new policy processes,influenced by the interpretive effect,resource effect,and learning effect of policies,the cognition,abilities,and behaviors of both types of actors undergo transformation.This subsequently alters the mode of action of administrative power and autonomous power on rural society,shaping a new state-rural relation and rural self-governance rules.Ultimately,it manifests the succession of state-rural relation and rural autonomous orders,ie.,policy processes reshape the rural politics:transitioning from“suspended provision”during the abolition of agricultural taxes to“precise distribution”in the era of precise poverty alleviation,and further evolving from“precise distribution”to“integrated development” in the rural revitalization period.The analytical framework of“policy-politics”reveals the mechanism of rural political changes,indicating that in conducting policy analysis and political analysis related to rural areas,attention should be paid not only to the impact of politics on policies but also not ignore the counter-effects of policies on politics.Equally,it is crucial to focus not only on the direct effects of policy arrangements on rural development but also on the reshaping effects of policy processes on rural politics,so as to achieve a deep and constructive interaction between policy and politics.