“大包干”政策过程：从“一刀切”到“切三刀”
The Policy Process of Implementing the “Dabaogan”：From Unified Policy to Three Regulations for Three Categories of Areas

摘要 农业大包干的政策过程，是农村改革最艰难、最关键的阶段，历时三年。1982年1月中央一号文件标志着这场政策争执落幕。在确立农民自主选择的政策原则之前，经历了三种政策形态：“一刀切”政策是指对于包产到户一律否定，持续时间从1978年12月到1980年9月；“切两刀”政策是指分两类地区，即贫困地区可以搞，一般地区不要搞，持续时间从1980年9月到1981年3月；“切三刀”政策是指分三类地区，即贫困地区实行“包产到户、包干到户，中间地区实行“统一经营、联产到劳”，发达地区实行“专业承包、联产计酬”，持续时间是1981年3月到1982年1月。这种政策变迁并非规划、设计、导演的过程，而是顺流而下、顺势而为的过程。在这个过程中，农民步步紧逼，政府则节节退让。在政府退让过程中，高层领导内部不断发生意见分歧，有的主张节制农民，甚至改造农民，有的主张顺应农民、追随农民。不同意见的交锋和演变，构成高层政策过程的三个清晰阶段，显示了1980年代农村改革高层决策的机制和逻辑。
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.