基层政策执行中的“加码”与“减码”行为研究——以A镇“农村人居环境整治”为例

治理研究 ›› 2025, Vol. 41 ›› Issue (1): 65-80.

基层政策执行中的“加码”与“减码”行为研究——以A镇“农村人居环境整治”为例

崔晶, 毕馨雨, 应宁远

收稿日期:2024-07-27 出版日期:2025-01-15 发布日期:2025-03-11
作者简介:崔晶,中央财经大学政府管理学院教授、博士生导师,中央财经大学“龙马学者”青年学者;
毕馨雨,中央财经大学政府管理学院博士研究生;
应宁远,中央财经大学政府管理学院学生。
基金资助:
国家社会科学基金重点项目“基层治理现代化视域下政策执行的转化与创新机制研究”(24AZZ008)

“Added-workload” and “Deducted-workload” in Grass-roots Policy Implementation——A Case Study of the Implementation of the Rural Living Environment Upgrade Policy in S Province’s A Town

Cui Jing, Bi Xinyu, Ying Ningyuan

Received:2024-07-27 Published:2025-01-15 Online:2025-03-11

摘要/Abstract

摘要：

基层政策执行行为是中国基层治理研究中的重要议题。本文基于“组织张力-行为博弈-执行效果”的逻辑链条,通过对S省A镇“农村人居环境整治”政策执行的案例分析,归纳了“乡镇政府内部不同职级人员策略互动”的分析框架。在S省A镇“农村人居环境整治”政策执行中,乡镇主要领导通过主动认领政策任务、提高执行标准、缩短执行期限等方式回应上级政府的“加码”要求;而身处基层一线的政策执行人员却表现出分类迎检、缓落实、政策“停摆”等“减码”行为。在科层制主导的基层治理中,乡镇组织的运作方式呈现出“松散关联”的特点。乡镇政府内部的权责失衡、激励偏差、动员失调、情感疏离等多重组织张力,引起了不同职级人员之间的“加码”和“减码”博弈,促进了基层政策执行中的动态平衡。

关键词: 基层政策执行, 基层策略性互动, 松散关联, 农村人居环境整治

Abstract:

The behavior of grassroots policy implementation is an essential issue in the study of grassroots governance in China. Based on the logical chain of the organizational tension-behavioral game-implementation effect, this paper summarizes the “strategic interaction of grassroots cadres in different levels of grassroots government” framework to analyze the case of A town’s implementation of the Rural Living Environment Upgrade policy in S Province. By tracking the implementation process, grassroots cadres can be seen taking the initiative to claim work tasks, improving policy standards, shortening the implementation period, and responding to the added-workload of the superior government. However, while these grassroots policy executors were implementing the policy, they also delayed implementation and suspended policies, among other behaviors. Grassroots governance through township governments, which is largely dominated by bureaucracy, is often loosely coupled. Multiple organizational tensions, including power-responsibility imbalances, incentive deviations, mobilization disparities, and emotional alienation, give rise to an interplay in which grassroots cadres at different levels within the township government engage in a game of “added-workload” and “deducted-workload”. This back and forth significantly impacts the outcomes of policy implementation.

Key words: grassroots policy implementation, grassroots strategic interaction, loosely-coupled relationship, rural living environment upgrade

中图分类号:

崔晶, 毕馨雨, 应宁远. 基层政策执行中的“加码”与“减码”行为研究——以A镇“农村人居环境整治”为例[J]. 治理研究, 2025, 41(1): 65-80.

Cui Jing, Bi Xinyu, Ying Ningyuan. “Added-workload” and “Deducted-workload” in Grass-roots Policy Implementation——A Case Study of the Implementation of the Rural Living Environment Upgrade Policy in S Province’s A Town[J]. Governance Studies, 2025, 41(1): 65-80.