村委会权力运作嬗变下的村庄治理——以皖中DG村“老板”村干部为例

Village Governance under the Change of Village Committee’s Power Operation——Taking the “Boss” Village Cadres of the DG Village in the Middle of Anhui Province as an Example

村庄权力研究是透视乡村社会性质的重要视角和理解村庄政治的基础。国家层面和地方层面法律对村委会权力虽然有着明确相关规定,但村委会法定权力和实际运作仍然名实分离,因此,"老板"村干部主导下的村委会权力运作模式应运而生,从而导致村民自治被事实上的"村组织自治"所置换。在这种模式下,面对自上而下和自下而上的各种治理压力,村委会("老板"村干部)依赖所拥有的资源,选择和使用相应的方式,利用组织起来的各种力量——村干部、离职村干部、党员、积极分子、有影响力的村民以及普通村民——形成紧密联结的利益网络,来应对和解决自身面临的治理困境,并积极争取有利于自身发展的各种机会。诚然,这种模式在一定程度上促进了村庄的经济发展,然而,对于村庄民主政治的发展却是"险"多于"美"。因此,要构建相关的制度框架,对"老板"村干部的权力运作进行严格的规范、约束。

The study of the village power is the important perspective seeing through the rural social nature and the basis understanding the village politics. Although the law s at the national and local levels have clear regulations on the power of the village committee,the legal power and actual operation of the village committee are still separated from each other. Therefore,the power operation mode of the village committee led by the"boss"village cadres came into being,which led to the replacement of village self-government by the de facto "village organization autonomy ". In this mode,in the face of top-down and bottom-up governance pressures,the village committee( "boss"village cadres) relies on the resources they have,chooses and uses the appropriate methods,and uses the organized various forces—village cadres,resigned village cadres,party members,activists,influential villagers,and ordinary villagers—form a tightly connected network of intereststo cope with and resolve the governance dilemmas they face,and actively strive for various opportunities that are conducive to their own development. It is true that this model has promoted the economic development of the village to a certain extent. However,the development of village democracy is more"risk " than "beauty ". Therefore,it is necessary to construct a relevant institutional framework to strictly regulate and restrict the power operation of"boss"village cadres.The paper is divided into three parts to explain the power operation of the village committee:Charter I of this paper first puts forward the research questions. What are the powers of the village committee under the new situation? What are the factors that affect the operation of power? What are the ways of power operation,and what problems may exist in the operation. How should we solve it? Secondly,it summarizes the relevant achievements of the academic community on the study of village power. In summary,there are two research paths: one is to study the interaction between various power bodies within the village;the other is to study the relationship between the state and the village. Finally,it studies the relevant regulations of the village committee’s power at the national and local levels,and analyzes the characteristics of the actual operation of the village committee’s power that matches the rural problems and the nature of rural governance. On this basis,it describes the situation of the separation of the legal power and the actual operation of the village committee.Charter II of this paper is a complete field investigation part,which reflects the investigation of the natural environment,the real social environment and the traditional historical and cultural environment of DG village. It focuses on the various complicated factors affecting the power operation of DG village and reveals the close relationship between the poweroperation of the committee and the political and ecological environment on which it grow s and moves forward. Specifically,this part analyzes the four factors affecting the power operation of the DG village committee: the pressure system controls the power operation of the village committee through the organizational structure,the "political contract system "and the financial system;the community memory,the economy situation of the village,the social connection of the village,and the economic and social differentiation of the local society restrict the power operation of the village committee;other village-level organizations such as the party organization,the villager meeting,the village representative meeting,the village supervision committee and the villager group are are passive and indifferent in restricting the power operation of village committees;the village committees and village cadres as rational actors have a great influence on the power operation of the village committee. In general,the influencing factors of the above four aspects reflect the rural relationship in current strong town and weak village between DG Village and SJ Town,which is manifested by the strong administrative force infiltrating into the village-level organization,and facing strong national intervention,the village-level organizations lacked the corresponding economic power,social strength and institutional strength to compete with them,and the village-level organizations gradually became bureaucratized. Village-level organizations that are in a weak position in rural relations have higher authority in the villages,and use the various forces organized( such as village cadres,party members,village representatives,etc.) to complete the tasks assigned by the superiors and meet the needs of the village,to meet the needs of the village to achieve effective governance.Charter III of this paper depicts the game process of power-rights and the related institutional framework for the negative effects of power operation. This chapter is generally divided into two parts: the first part defines the premise ofthe "boss"village cadre of the DG village committee’s power operation,and the "boss"village cadre. In this case,it analyzes the specific ways in which the "boss"village cadres who lead the power of the village committee rely on their own resources to operate their powers: running the projects for the funding;playing the role of "the insiders"of the clan and marriage within three generations;internalizing "the insiders"through the establishment of the proposed pro-oriented relationships network,the institutional identity given and the policy of the subsistence allowances;playing the role of the institutional elites which are the village cadres to leave the jobs,the party members with no posts and the village representatives. Through the analysis of this part,we can see that the village committee combines the resources owned by the village committee itself with the resources owned by the village cadres in the operation of power,and relies on these combinations to select the corresponding power operation mode. And the above-mentioned various village committees’ power operation methods are not completely separate,but are intertwined.The second part analyzes that in the operation of power,the "boss "village cadres use the various forces organized( village cadres,resigned village cadres,party members,activists,influential villagers and ordinary villagers) to form a tightly connected interest network. In this interest network,the "boss"village cadres play a leading role as the actual operational force of the village committee’s power,leading the process and direction of the entire power operation. Of course,this kind of operation will bring certain governance performance to the village governance. For example,it can provide more resources for the village,help the villagers to get rich and increase income,and have higher policy enforcement power. However,it will inevitably bring about some negative consequences. The negative effects such as: suppressing the development of rural grassroots democracy,restricting the normal supply of public goods in the village,widening the gap between the rich and the poor inrural areas,weakening the public power of the village,and hinders the virtuous operation of village politics. Therefore,it is necessary to put forward relevant countermeasures for the negative effects of the power operation of the village committee and all the irregularities. The specific measures include:standardizing the behavior of the grassroots government,improving the policy of the project system,consummating the construction of the democratic political system at the village level,and strengthening the "the boss’ s "standard management of village cadres. It is hoped that through the above measures,the boss will further restrict the behavior of private interests,standardize and put an end to the behavior of overriding private interests above public interest,so that village governance can truly benefit the people.The conclusion part is to further conclude and summarize the power operation of the village committee,and put forward suggestions for follow-up research,which inspires people to think more deeply about the power operation of the village committee.This paper adopts the field work method of social anthropology,taking a village in Anhui Province as the research object. It is a case study. The case study is characterized by combining microscopic reality with macro narrative,discovering the essence of the problem by mining local resources based on detailed investigation of specific events. Therefore,the research methods in this paper are mainly case study methods. The reason why DG Village is chosen is based on the social structure of the village. In the vast inland areas of China,there are many such villages. There is no special place in this village. It may be that it can reflect the value of research and reflect the typical characteristics of case studies. This is the basis for the selection of this article. One of the more important reasons is that DG Village is in the hometown of the author. The author has lived here for a long time. He is familiar with and understands the local customs and customs. In addition,there are many close relatives andfriends who work and live here. It can bring a lot of convenience to interview s and data collection,and it is also helpful to deeply understand the complex subtle details or implication of the interviewees and their expressions,so as to facilitate a more in-depth analysis of the research objects.In summary,the actual operation of the village committee’s power presents the following characteristics:First,the logic of the operation of the village committee’s power is: as long as the higher level government and its functional departments have assigned the task objectives to be completed to the village committee,and the corresponding governance pressure is given to them,the village committee will turn it into its own responsible for governance,and actively allocate resources,mobilize all the forces that can be organized,and carry out the operation of power to carry out village governance. Therefore,the actual operation of the village committee’s power is mainly to complete the work tasks of the higherlevel governance pressure,and pay less attention to the internal governance of the village.Second,the power operation of the village committee is mainly carried out by using the interest network of power built on the basis of interest relations. The intrusion of the market economy into the rural society has made the interpersonal relationship more and more rational. The "cultural network of power"based on the traditional interpersonal relationship network naturally dissolves slow ly and cannot support the power operation of the village committee. Therefore,the village committee and the "boss " village cadres organized various forces inside and outside the village based on the interest relationship,and built a power interest network to ensure the effective operation of the village committee’s power. M oreover,the various forces participating in the power operation of the village committee are basically based on an economic rational consideration,mainly to see how much benefitthey can bring to themselves.Third,the strategic operation of the village committee’s power. The power operation of the village committee does not require institutionalization,standardization and impersonalization,nor does it emphasize low cost and high efficiency. It is flexible and expedient. It can always be based on local conditions,time,people and circumstances. The techniques,means,and methods that contribute to the functioning of power,formal or informal,legal or illegal,legitimate or improper,are applied to the actual operation of power. M oreover,the way in which it works may be cost-free and at all costs,and the pursuit is to smooth things out. Therefore,the power operation of the village committee subject to the operational objectives will reflect a certain strategic nature.However,there are still some shortcomings in this article. Although the author has conducted long-term observation and research on a case village,it is still far from enough in terms of the complexity of the village committee’s power operation. Therefore,future research should continue to follow-up research on this village,and strive to through a longer observation,the conclusions of the research that better reflect the actual situation are obtained. M oreover,since the case study is a qualitative study,it does not generally involve statistical tests on the content of the interview,so the research conclusions are often subjective. In viewof this,the next research plan will be to explore the variables affecting the operation of the village committee and the relationship between them through questionnaires and statistical analysis along the quantitative research method,and verify the corresponding research conclusions by quantitative research to improve the scientific nature of research.