This paper argues that grassroots cadres were in part responsible for the many calamitous losses of the "Great Leap Forward," but that their behaviour had been influenced by three structural (policy) factors. First, the state did not reduce the tax burden on peasants when natural disasters hit China during that period. In order to protect themselves from being discharged, cadres endeavoured to attain the planned targets set by the state at the expense of the interest of the peasants. Second, the quality of cadres was low. Many of them were not well educated and they had poor knowledge of management. Third, the personnel assessment system was not efficient enough to screen out unqualified cadres. Dishonest officials were promoted. All these factors contributed to the conflicts between the peasants and the cadres, claiming lives on both sides.