The influence of the ORS on the behaviour of officials should not though be overstated. Structural constraints also impede alignment of incentives for officers with official policy goals (Burns and Zhou, 2010). Almost 60% of civil servants are employed at county and township level where promotion opportunities are few and pay differentials narrow, thus limiting these BX517（PDK1 inhibitor2） as a motivating factor. As a performance management system the ORS is also undermined by the compressed and relatively egalitarian structure of the local civil service, by supervisors who empathise with subordinates based on personal relationships rather than performance, and by practices such as selling of positions and other forms of corruption (Burns and Zhou, 2010). Thus in terms of ‘decoupling’ of environmental policy from implementation the ORS may have a dual effect. Where light reactions works it emphasizes economic growth over sustainability (as compounded by other factors discussed below), and where it is ineffective it simply fails to translate official environmental goals into action.