城乡关系视角下乡村治理演变的逻辑：1949～2019  

The Evolution Logics of Rural Governance from the Perspective of Urban-rural Relationship:From 1949 to 2019

作　　者：耿国阶[1,2] 王亚群 Geng Guojie;Wang Yaqun

机构地区：[1]东北大学文法学院 [2]辽宁大学哲学与公共管理学院

出　　处：《中国农村观察》2019年第6期19-31,共13页China Rural Survey

基　　金：国家社会科学基金一般项目“治理现代化背景下县级政府‘政策转换’的实证研究”（项目编号：16BZZ064）的阶段性成果

摘　　要：在中国特有的制度安排下,城乡关系是影响和理解70年乡村治理演变逻辑的重要维度。70年来,城乡关系先后经历了城乡分离、城乡失衡、城乡融合发展三个历史性阶段,"以农补工"的工业化优先政策、有限市场化与城乡非均衡发展政策、城乡融合发展政策先后成为主导城乡关系基本格局的战略性安排。具体到乡村治理演变上:"以农补工"的工业化优先政策使乡村以人民公社为组织载体的集体化治理成为"城乡分治"的逻辑延伸,党、政、社、经高度合一的整体性控制和动员成为该阶段乡村治理的支配性逻辑;1978年后,因应有限市场化与城乡非均衡发展政策,家庭联产承包责任制和"乡政村治"体制逐渐建立,党政社经相对分离,但计生、粮款征收、维稳等刚性任务压力较大,压力型体制和乡村治理的行政化逻辑成为主导逻辑;2006年以来,伴随农业税取消、大规模"以工补农",以及城乡融合发展政策的逐渐成型,传统任务压力大幅减轻,压力型体制向"三治合一"体系的转变,行政化逻辑向公共服务逻辑的转变,成为乡村治理演变的必然趋势。Under the basic institutional arrangements with the Chinese characteristics,urban-rural relationship is an important dimension to influence and understand the evolution logics of rural governance.In the past 70 years,the relationship between urban and rural areas has experienced three historical stages:urban-rural separation,urban-rural imbalance and urban-rural integration.Correspondingly,the industrialization priority policy,limited marketization and urban-rural unbalanced development,as well as urban-rural integrated development,have successively become the dominant policy of each stage.Specific to the evolution of rural governance,three different governance logics emerged successively.The collective governance under the form of People’s Commune is the logic of industrialization priority policy at the expense of rural development,holistic control and mobilization is the dominant logic of the second stage.After 1978,with the policy of limited marketization and urban-rural unbalanced development,the household contract responsibility system and the system of "township government and village self-governance" were gradually established.The party,government,society and economy were relatively separated,but the rigid tasks of family planning,grain money collection and stability maintenance were under great pressure,and the administrative logic of pressure system and village governance became the dominant logic.Since 2006,with the abolition of agricultural tax,it became an inevitable trend for rural governance to change from the traditional task pressure system to the "three governance in one" system,and from the administrative logic to the public service logic.

关 键 词：城乡关系 乡村治理 整体性控制 行政化 公共服务 

分 类 号：D67[政治法律—政治学]