“过度化执行”:基层政府与农村低保政策的执行逻辑  

“Excessive Implementation”: the Grass-root Government and the Operation Logic of Rural Minimum Living Security System

作　　者：寇浩宁[1] 李平菊[2] 

机构地区：[1]北京科技大学文法学院,北京100083 [2]华北电力大学法政系,河北保定071000

出　　处：《深圳大学学报（人文社会科学版）》2017年第3期135-141,共7页Journal of Shenzhen University：Humanities & Social Sciences

基　　金：中央高校基本科研业务费专项资金资助项目"基层行政体制与农村低保政策执行研究"(FRF-TP-15-048A2)

摘　　要：我国农村低保政策的运行主要体现为基层政府的政策执行活动。通过对河北省北县、南县和宁县的调查发现,该政策的执行过程存在着明显的阶段性:初期的过度放宽与后期的过度收紧。这种阶段性的变动反映了基层政府在农村低保政策执行中的"过度化执行"逻辑,即人为放大上级政府所设定的行政目标,上级要求"应保尽保"则过度放宽办理条件,上级要求适度收紧则过度收缩甚至完全终止办理。这一执行逻辑的出现源于我国政府强力性、多层级的人事与财政控制、虚弱性的行政过程监督造成的基层政府"重结果而轻过程"的行为特征,以及自上而下的政绩考核与晋升竞争机制,使得基层政府形成对上级设定的政策目标层层加码以确保足额超额完成任务、凸显政绩的行政"冲动"。The operation of China＇s Rural Minimum Living Security System （RMLSS） is mainly embodied in policy implementation of the grass-root governments. The investigation in Beixian County, Nanxian County, and Ningxian County of Hebei Province reveals there are two stages in policy implementation of RMLSS： the early stage of exeessively loose implementation and the late stage of excessively tight implementation. This change reflects the excessive logic in the implementation of the rural minimum living security policies of the grass-root government, namely artificial amplification of the administrative goals set by higher authorities. The grass-root government exeessively loosens the requirements when higher authorities request RMLSS should cover all the people who meet the requirements, while excessively tighten the requirements and even totally stop the service when higher authorities call for moderately tight policies. This implementation logic results from the grass-root government＇s result-oriented behavioral features caused by powerful government, multilevel personnel and fiscal restraint, and weak supervision of administrative process, and the top-down performance evaluation system and promotion mechanism, which makes the grass-root governments add new rules and requirements at every level to ensure that they can fulfill and even overfulfill the task so as to accomplish prominent achievements.

关 键 词：农村低保 政策执行 基层政府 过度化执行 

分 类 号：C915[经济管理]