Research On The Behavior Logic Of Village Cadres From The Perspective Of Street-Level Bureaucrat Theory

The research on village cadres has made a lot of achievements.Most of these researches have made a detailed discussion on the role and behavior of village cadres from the perspectives of structure and system,inside and outside the village,static and dynamic.Although there are different perspectives on the study of village cadres,it is difficult to deny the ideal dual role of village cadres,that is,the government agent,the villager in charge,and the rational role played by individuals all the time.As the external performance of the role,the basic direction of behavior is largely determined by the role.Behind these roles all hide the behavior logic of village cadres.This paper takes the implementation of village cadres’ discretion as the analysis center,and takes the action process of village cadres in the process of land circulation in Y village in Northwest Henan Province as an example to analyzes the behavior logic of village cadres from the middle and micro levels.Based on the methods of interview and observation,this paper analyzes the behavior of village cadres in the process of land circulation in Y village.It is found that the main behavior strategies of village cadres are as follows:first,in order to complete the policy task,village cadres regard prohibited behavior as the standard of policy-making,and regard the bottom line and red line as the standard of implementation,which has the characteristics of policy adjustment of negative list;second,in the face of the broad masses of people,village cadres skip the stage of public opinion solicitation,and distinguish the policy pairs that are easy to implement;thirdly,in the face of the villagers’ lack of cooperation,the village cadres lack the persuasion stage,and adopt the "structural interview" one by one,and put pressure on the villagers to sign contracts;fourthly,when interacting with the villagers,the village cadres often carry out the "surprise attack" mode,including the sudden increase of time and personal psychological cost,so as to make a breakthrough the normal psychology.The main purpose of these behaviors is to complete the task,to a certain extent ignoring the wishes of the villagers.The process of land circulation is a negative experience for both villagers and village cadres.From the perspective of street bureaucrat theory,this paper attempts to analyze the behavior logic of village cadres in land circulation.The main point of street bureaucrat theory is:under the influence of multiple factors,street bureaucrats develop some strategies through th e use of discretion in order to relieve the pressure on work.These factors mainly include organizational characteristics,customer characteristics and personal characteristics of village cadres.Inspired by this,this paper analyzes the behavior logic of village cadres from the existence of discretion,the personal characteristics of village cadres,the characteristics of township government and the characteristics of villagers.The analysis shows that:the discretion provides a prerequisite for the policy-making and implementation of village cadres;the multiple interests of village cadres and the inheritance of traditional ideas provide dynamic support and behavior guidance for the policy implementation;the task arrangement and control of township government provide direct stimulation and basic direction for the policy-making of village cadres;and the villagers’ weak sense of supervision and differentiation behavior provide an unimpeded environment for the policy formulation and implementation of village cadres.The process of policy implementation of village cadres is shown as the process of re-formulating policies on the basis of discretion.From the results of policy implementation,the behavior of village cadres makes the policy objectives basically achieved,and the interests of the villagers are basically maintained.However,the twists and turns and frictions in the implementation process are a negative emotional experience for villagers and village cadres.The village cadres’discretion was fully used in the land transfer,and they continued to maintain the advantage of policy implementation.