当代中国乡村治理研究
|
摘要
以村民自治为核心的乡村治理是改革开放以来中国社会结构转型过程中的一项制度创新,是中国乡村基层政治、经济体制改革的产物,是当代中国最引人瞩目的政治现象。20世纪80年代以来,乡村治理改革作为一项伟大的社会系统工程,在中国乡村如火如荼地展开,近30年的实践证明,这场社会改革极大地推动了基层民主政治发展,对国家政治体制改革及民主政治发展产生了深刻影响。但不容忽视的一个事实是,在乡村治理运作过程中,“乡政村治”陷入了重重困境。因此,有必要进一步深入研究当代中国的乡村治理,以期为未来的乡村治理改革提供新的路径。
本文以江浙地区为例,通过深入研究当代乡村治理的格局,探讨乡村治理的深层次问题,力求找到解决现实问题的途径和方法。笔者把当代江浙地区的乡村治理现状作为研究的逻辑起点,重点分析了乡村治理的基本模式及其治理环境和治理特点。总体上认为,江浙地区作为中国乡村的一个区域空间,其治理状况基本上反映了当代中国乡村治理的现状。笔者认为,当代的乡村治理有其深刻的历史渊源和社会基础,随着社会不断发展和演进,乡村治理实践方式在不断完善,治理功能在不断强化,呈现出多样性的特点。从当前来看,乡村治理具有丰富的社会环境条件,其社会人文环境、政治环境、经济环境已日趋成熟。江浙地区作为基层民主改革的试验田,在长期的探索实践中已积累了诸多成功经验,他们在扩大基层民主、推进依法治村、密切干群关系、完善公共服务、拉动经济增长等方面已做出了有益的尝试,这些成熟的经验和做法值得全国其他地区学习、借鉴。需要指出的是,乡村治理改革处在动态的发展变化之中,在当前的“乡政村治”治理体制下,政府治理和村民自治时而呈现出冲突,时而呈现出合流,这种矛盾性的表现使乡村治理和其基本的善治理念相背离。其突出表现是职能转型不到位,治理结构不规范,法规制度不完善,思想观念相对滞后等。究其原因,可归结为体制环境制约、保障制度缺失、思想观念束缚等方面。
笔者认为,应当坚持“双重民主化”(国家主导民主制度变迁、村民实行自治)的理念,充分发挥国家制度层面的主导作用,有效调动村民自治的主动性和创造性,上下结合地推进当代中国乡村的民主化治理进程。本文提出了诸如转变政府职能、优化治理结构、健全法规制度、加强民主监督、完善文化建设、革新行政手段以及借鉴域外经验等一系列改进和完善乡村治理的思路和对策。我们有理由相信,随着乡村治理运作模式的不断成熟和完善,一定会出现一个生动活泼的乡村治理局面。
Since the reform and opening up, self-governance of villagers as the core of structural transformation of chinese society, it is an institutional innovation. It is product of the rural grass-roots political, economic, and cultural system reform. It is the most attention political landscape in contemporary China. Since the 80s of the 20th century, rural governance reform as a great social project, rapid growth in rural of China.30 years of fact is the best proof .This social reform has greatly promoted the development of grass roots democracy. It had a profound effect for the development of the country's political system and democracy. I believe that sum up experience of rural governance is the key to success. But we can not ignored the fact it’s that various contradictions and conflicts have emerged in the process of rural governance,This makes the traditional "Rural Governance" model into trouble. Therefore, it is necessary to further study of contemporary China's rural governance. Only in this way, can we provide a new path of reform for the future of rural governance.
In this paper, we take Jiangsu and Zhejiang as an example. Through further study of contemporary patterns of rural governance, discuss deep-seated problems of rural governance,seek to find solutions to practical problems of ways and means. I put the contemporary status of rural governance Jiangsu and Zhejiang provinces, as the logical starting point for research, analyze on village governance structure and base of governance is emphasis. Jiangsu and Zhejiang, as a region of space in rural China, It basically reflects the status of contemporary governance in rural China .I believe that contemporary rural governance has deep historical origins and social infrastructure, with the development of society, the organization of rural governance will be improved, functions will be strengthen, showing a diversity of characteristics. From the current view, based on village governance is rich, its governance based on social environment, political environment, economic environment is becoming increasingly mature. Jiangsu and Zhejiang area as a testing ground for grass-roots democratic reform, in the long-term exploration and practice has accumulated many successful experiences, expand grassroots democracy, advance legal village, close relationship between cadres, improve public services, stimulate economic growth has already made a useful attempt in the region. These mature experience and practice should be learned for the rest of the country , it should be pointed out that rural governance reform in the development of dynamic changes, in the current "Rural Governance" governance model, governance and village self-governance sometimes conflict, sometimes show the convergence,the performance of this contradiction lost the original meaning of the rural governance,this goes against the basic idea. Functions it is not in place in transition, governance structure is not standardized, regulatory system is imperfect, understanding lagged behind other ideas is the outstanding performance. Analyze the reasons can be attributed to institutional environment constraints,lack of security system, ideological constraints and so on.
In my opinion, we should adhere to the "double democratization" (country-led democratic change, the villagers self-government), we full play the leading role of the national institutional level,stimulate the initiative and creativity of village self-government, combine up and down in rural China to promote the democratization of contemporary governance processes. In this paper, such as innovation management system, the transformation of government functions, optimizing management structure, improve the laws and regulations, strengthen democratic supervision, improve the cultural construction, overhaul administrative means and learn from foreign experience to be put forward ,these ideas and measures can be method to improve and perfect a series of village governance. We can believe that a lively village governance situation will be appeared with the mode of operation of rural governance continues to mature and improve.
本文以江浙地区为例,通过深入研究当代乡村治理的格局,探讨乡村治理的深层次问题,力求找到解决现实问题的途径和方法。笔者把当代江浙地区的乡村治理现状作为研究的逻辑起点,重点分析了乡村治理的基本模式及其治理环境和治理特点。总体上认为,江浙地区作为中国乡村的一个区域空间,其治理状况基本上反映了当代中国乡村治理的现状。笔者认为,当代的乡村治理有其深刻的历史渊源和社会基础,随着社会不断发展和演进,乡村治理实践方式在不断完善,治理功能在不断强化,呈现出多样性的特点。从当前来看,乡村治理具有丰富的社会环境条件,其社会人文环境、政治环境、经济环境已日趋成熟。江浙地区作为基层民主改革的试验田,在长期的探索实践中已积累了诸多成功经验,他们在扩大基层民主、推进依法治村、密切干群关系、完善公共服务、拉动经济增长等方面已做出了有益的尝试,这些成熟的经验和做法值得全国其他地区学习、借鉴。需要指出的是,乡村治理改革处在动态的发展变化之中,在当前的“乡政村治”治理体制下,政府治理和村民自治时而呈现出冲突,时而呈现出合流,这种矛盾性的表现使乡村治理和其基本的善治理念相背离。其突出表现是职能转型不到位,治理结构不规范,法规制度不完善,思想观念相对滞后等。究其原因,可归结为体制环境制约、保障制度缺失、思想观念束缚等方面。
笔者认为,应当坚持“双重民主化”(国家主导民主制度变迁、村民实行自治)的理念,充分发挥国家制度层面的主导作用,有效调动村民自治的主动性和创造性,上下结合地推进当代中国乡村的民主化治理进程。本文提出了诸如转变政府职能、优化治理结构、健全法规制度、加强民主监督、完善文化建设、革新行政手段以及借鉴域外经验等一系列改进和完善乡村治理的思路和对策。我们有理由相信,随着乡村治理运作模式的不断成熟和完善,一定会出现一个生动活泼的乡村治理局面。
Since the reform and opening up, self-governance of villagers as the core of structural transformation of chinese society, it is an institutional innovation. It is product of the rural grass-roots political, economic, and cultural system reform. It is the most attention political landscape in contemporary China. Since the 80s of the 20th century, rural governance reform as a great social project, rapid growth in rural of China.30 years of fact is the best proof .This social reform has greatly promoted the development of grass roots democracy. It had a profound effect for the development of the country's political system and democracy. I believe that sum up experience of rural governance is the key to success. But we can not ignored the fact it’s that various contradictions and conflicts have emerged in the process of rural governance,This makes the traditional "Rural Governance" model into trouble. Therefore, it is necessary to further study of contemporary China's rural governance. Only in this way, can we provide a new path of reform for the future of rural governance.
In this paper, we take Jiangsu and Zhejiang as an example. Through further study of contemporary patterns of rural governance, discuss deep-seated problems of rural governance,seek to find solutions to practical problems of ways and means. I put the contemporary status of rural governance Jiangsu and Zhejiang provinces, as the logical starting point for research, analyze on village governance structure and base of governance is emphasis. Jiangsu and Zhejiang, as a region of space in rural China, It basically reflects the status of contemporary governance in rural China .I believe that contemporary rural governance has deep historical origins and social infrastructure, with the development of society, the organization of rural governance will be improved, functions will be strengthen, showing a diversity of characteristics. From the current view, based on village governance is rich, its governance based on social environment, political environment, economic environment is becoming increasingly mature. Jiangsu and Zhejiang area as a testing ground for grass-roots democratic reform, in the long-term exploration and practice has accumulated many successful experiences, expand grassroots democracy, advance legal village, close relationship between cadres, improve public services, stimulate economic growth has already made a useful attempt in the region. These mature experience and practice should be learned for the rest of the country , it should be pointed out that rural governance reform in the development of dynamic changes, in the current "Rural Governance" governance model, governance and village self-governance sometimes conflict, sometimes show the convergence,the performance of this contradiction lost the original meaning of the rural governance,this goes against the basic idea. Functions it is not in place in transition, governance structure is not standardized, regulatory system is imperfect, understanding lagged behind other ideas is the outstanding performance. Analyze the reasons can be attributed to institutional environment constraints,lack of security system, ideological constraints and so on.
In my opinion, we should adhere to the "double democratization" (country-led democratic change, the villagers self-government), we full play the leading role of the national institutional level,stimulate the initiative and creativity of village self-government, combine up and down in rural China to promote the democratization of contemporary governance processes. In this paper, such as innovation management system, the transformation of government functions, optimizing management structure, improve the laws and regulations, strengthen democratic supervision, improve the cultural construction, overhaul administrative means and learn from foreign experience to be put forward ,these ideas and measures can be method to improve and perfect a series of village governance. We can believe that a lively village governance situation will be appeared with the mode of operation of rural governance continues to mature and improve.
引文
[1]王振耀等.中国农村村民代表会议制度[M].北京:中国社会出版社,1995.18-19
[2]王仲田.中国农村政治稳定与发展[M].武汉:武汉出版社,1995.328-329
[3]王振海.论中国的农村基层群众性自治制度[J].上海社会科学院学术季刊,1998(2):38
[4]冯辉.对我国村民自治制度的几点认识[J].政治学研究,1996(3):35
[5]何清涟.农村基层地方恶势力的兴起[J].二十一世纪(双月刊),1997(3):47
[6]徐勇.论乡政管理与村民自治的有机衔接[J].华中师范大学学报,1997(1):19-20
[7]唐鸣.对农村基层政治关系中两个问题的探讨[J].社会主义研究,1996(4):37
[8]陈潭,罗晓俊.中国乡村公共治理研究报告[J].公共管理学报,2008(5):10
[9]吴淼,吴毅.村民自治:理论资源和运作绩效——对沈延生《村政的兴衰与重建》及党国印《“村民自治”是民主政治的起点吗?》两文的评议[J].社会主义研究,1999(4):76-78
[10]陈潭,罗晓俊.中国乡村公共治理研究报告[J].公共管理学报,2008(5):10
[11]王长安.转型期中国乡村治理研究[D].吉林:吉林大学,2007
[12]张健.中国社会历史变迁中的乡村治理研究[D].陕西:西北农林科技大学,2008
[13]王长安.转型期中国乡村治理研究[D].吉林:吉林大学,2007
[14]陈潭,罗晓俊.中国乡村公共治理研究报告[J].公共管理学报,2008(5):15-17
[15] The commission on global governance. Our global neighborhood: the report of the commission on global governance [J]. Oxford University Press,1995:2
[16] Courtois P.J 1985 on time and space decomposition of complex structures. communications of the ACM [J]. Communications of the ACM, 1998:456-459
[17]俞可平.治理与善治[M].北京:社会科学文献出版社,2000.8-9
[18]徐勇.中国农村村民自治[M].武汉:华中师范大学出版社,1997.22
[19]袁秉达.社区论[M].北京:中国纺织大学出版社,2000.3
[20]许婷.乡村治理的运行模式:浙江温岭“官治一自治”双轨制的经验研究[D].浙江:浙江大学,2007
[21]当代公民社会理论思想论述. [EB/OL].[2009-10-13]http://www.ccps.gov.cn/dxrd.php?col=161&file=5582
[22]谢地坤.哈贝马斯在华讲演集[M].北京:人民出版社,2002.78-88
[23]余敏江,梁莹.协商民主与政策执行网络[J].理论探索2006(1):32-35
[24] David, p.a.1985.clio and economic of QWERTY.Amecican Economic Review [J]. Thenature of the firm. Economic, 1999:156-158
[25] Eleanor ? Ostrom. Public affairs of governance of the Road [M].上海:上海三联书店, 2000.275
[26]彭真.关于中华人民共和国宪法修改草案的说明[M].北京:人民出版社,1982.78
[27]于毓蓝.农村基层民主的政治文化的分析[M].北京:社会科学文献出版社,2006(7).198
[28]卢福营.农民分化过程中的村治[M].海口:南方出版社,2000.2
[29]江苏吴江市S镇.社会发展统计年鉴[M].32
[30]同上,p45
[31]浙江义乌市大陈镇基层组织史料第三卷[M].2002.24
[32]东方网.常山县农委信息[EB/OL].[2010-03-12] http://news.eastday.com/m/20071110/u1a3219300.html
[33] J.S.密尔.代议制政府[M].北京:商务印书馆,1982.1
[34]王元仁.农村基层民主选举刍议[J].行政与法,2003(7):62
[35]王艳敏.转变乡镇政府职:构建农村和谐社会的着力点[EB/OL].[2010-03-12].http://www. people.com.cn/
[36]郜风涛关于修订《村民委员会组织法》若干问题的思考. [EB/OL].[2010-04-09].http://www. people.com.cn/
[37]中共中央农村工作部际协调办公室,关于健全和完善村务公开和民主管理制度的意见[M].北京:社会科学文献出版社,2004.18
[38]全国村务公开协调小组办公室,健全和完善村务公开和民主管理制度学习读本[M].北京:中国青年出版社,2004.54
[2]王仲田.中国农村政治稳定与发展[M].武汉:武汉出版社,1995.328-329
[3]王振海.论中国的农村基层群众性自治制度[J].上海社会科学院学术季刊,1998(2):38
[4]冯辉.对我国村民自治制度的几点认识[J].政治学研究,1996(3):35
[5]何清涟.农村基层地方恶势力的兴起[J].二十一世纪(双月刊),1997(3):47
[6]徐勇.论乡政管理与村民自治的有机衔接[J].华中师范大学学报,1997(1):19-20
[7]唐鸣.对农村基层政治关系中两个问题的探讨[J].社会主义研究,1996(4):37
[8]陈潭,罗晓俊.中国乡村公共治理研究报告[J].公共管理学报,2008(5):10
[9]吴淼,吴毅.村民自治:理论资源和运作绩效——对沈延生《村政的兴衰与重建》及党国印《“村民自治”是民主政治的起点吗?》两文的评议[J].社会主义研究,1999(4):76-78
[10]陈潭,罗晓俊.中国乡村公共治理研究报告[J].公共管理学报,2008(5):10
[11]王长安.转型期中国乡村治理研究[D].吉林:吉林大学,2007
[12]张健.中国社会历史变迁中的乡村治理研究[D].陕西:西北农林科技大学,2008
[13]王长安.转型期中国乡村治理研究[D].吉林:吉林大学,2007
[14]陈潭,罗晓俊.中国乡村公共治理研究报告[J].公共管理学报,2008(5):15-17
[15] The commission on global governance. Our global neighborhood: the report of the commission on global governance [J]. Oxford University Press,1995:2
[16] Courtois P.J 1985 on time and space decomposition of complex structures. communications of the ACM [J]. Communications of the ACM, 1998:456-459
[17]俞可平.治理与善治[M].北京:社会科学文献出版社,2000.8-9
[18]徐勇.中国农村村民自治[M].武汉:华中师范大学出版社,1997.22
[19]袁秉达.社区论[M].北京:中国纺织大学出版社,2000.3
[20]许婷.乡村治理的运行模式:浙江温岭“官治一自治”双轨制的经验研究[D].浙江:浙江大学,2007
[21]当代公民社会理论思想论述. [EB/OL].[2009-10-13]http://www.ccps.gov.cn/dxrd.php?col=161&file=5582
[22]谢地坤.哈贝马斯在华讲演集[M].北京:人民出版社,2002.78-88
[23]余敏江,梁莹.协商民主与政策执行网络[J].理论探索2006(1):32-35
[24] David, p.a.1985.clio and economic of QWERTY.Amecican Economic Review [J]. Thenature of the firm. Economic, 1999:156-158
[25] Eleanor ? Ostrom. Public affairs of governance of the Road [M].上海:上海三联书店, 2000.275
[26]彭真.关于中华人民共和国宪法修改草案的说明[M].北京:人民出版社,1982.78
[27]于毓蓝.农村基层民主的政治文化的分析[M].北京:社会科学文献出版社,2006(7).198
[28]卢福营.农民分化过程中的村治[M].海口:南方出版社,2000.2
[29]江苏吴江市S镇.社会发展统计年鉴[M].32
[30]同上,p45
[31]浙江义乌市大陈镇基层组织史料第三卷[M].2002.24
[32]东方网.常山县农委信息[EB/OL].[2010-03-12] http://news.eastday.com/m/20071110/u1a3219300.html
[33] J.S.密尔.代议制政府[M].北京:商务印书馆,1982.1
[34]王元仁.农村基层民主选举刍议[J].行政与法,2003(7):62
[35]王艳敏.转变乡镇政府职:构建农村和谐社会的着力点[EB/OL].[2010-03-12].http://www. people.com.cn/
[36]郜风涛关于修订《村民委员会组织法》若干问题的思考. [EB/OL].[2010-04-09].http://www. people.com.cn/
[37]中共中央农村工作部际协调办公室,关于健全和完善村务公开和民主管理制度的意见[M].北京:社会科学文献出版社,2004.18
[38]全国村务公开协调小组办公室,健全和完善村务公开和民主管理制度学习读本[M].北京:中国青年出版社,2004.54