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| The Policy Process of Implementing the “Dabaogan”：From Unified Policy to Three Regulations for Three Categories of Areas |
| Zhao Shukai |
| The Development Research Center of The State Council， Beijing 100010 |
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Abstract The process of implementing the “Dabaogan” (household responsibility system ) policy， lasting for 3 years， is the most difficult and essential part of the rural reform.The central document NO.1 published in January 1982 marked the end of the policy disputes.Before establishing the policy principle of peasant's independent choice， three policy forms took shape successively： first， unified policy entirely negates the fixing of farm output quotas for each household， lasting from December 1978 to September 1980； second， setting two categories of areas for two regulations，namely implementing the policy in poor areas but not in general areas， lasting from September 1980 to March 1981； third， setting three categories of areas to implement the policy， which means to have “work contracted to households” in poor areas， “unified management， co-production to labor” in intermediate areas and “professional contract， payment for co-production” in developed areas， and the policy lasts from March 1981 to January 1982. Such policy changes are not a process of planning， designing and directing， but are similar to going downstream or going with the flow.In this process， peasants pushed harder and harder， while the government conceded step by step. During government concession， opinions often diverge among senior leaders. Some advocate restraining or even reforming peasants， while some others advocate complying with peasants and following them.The confrontation and evolution of different opinions constitute three clear stages of high-level policies and show the mechanism and logic of high-level decision-making of rural reforms in the 1980s.
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Received: 15 March 2018
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2018, Vol. 57 
