复杂的地权政治与简约的宪制逻辑——《农村集体建设用地产权改革与基层治理转型研究》述评

Complex land rights politics and simple constitutional logic——Review on“Research on the Reform of Property Right of Rural Collective Construction Land and Transformation of Grassroots Governance”

吴晓燕教授新著《农村集体建设用地产权改革与基层治理转型研究》,以"产权冲击—治理回应"为叙事主线,全面系统地记录和阐释了主要发生在成渝两地农村集体建设用地产权改革与基层治理转型的实践逻辑及其改革经验,真实呈现了当代中国农村地权政治的"复杂化"特征及其内在矛盾,是一部成功运用了实证研究方法的政治科学精品之作,具有鲜明的理论创新价值和重要的资政鉴政意义。复杂的地权改革,引发了复杂的基层治理,是因为当地集体建设用地产权改革的直接目标并不是为了完善基层治理即村民自治,而是为了解决城市化对土地的渴求,是"醉翁之意不在酒",因而是一种"不见村集体"的村集体土地产权改革。这一点,尽管在吴著并没有直接予以挑明,但已经在书中内容的主旨中清楚地反映出来了。以优先明晰集体土地所有权主体为切入点的农村地权改革,可以重启地权政治的宪制逻辑,并能够把基层治理即村民自治重建与农村集体产权改革乃至乡村振兴有机结合起来,这一思路意味着要以简约化的宪制逻辑来规范和指导复杂无序、急功近利的地权政治实践(试点)。将"不见村集体"的村集体土地产权改革,转变为"重建村集体"的村集体土地产权改革,这样一种"宪法政治"思路,已经在吴著的结论部分隐约地呈现出来了。

Professor Wu Xiaoyan’s new book"Research on the Reform of Property Rights of Rural Collective Construction Land and Transformation of Grassroots Governance",with the"Property Impact—Governance Response"as the main line of narrative,comprehensively systematically records and interprets the property rights reform of rural collective construction land mainly in Chengdu and Chongqing.The practical logic and reform experience with grassroots governance transformation truly presents the"complexity"of contemporary Chinese rural land rights politics and its inherent contradictions.It is a political science masterpiece that successfully uses empirical research methods.The value of theoretical innovation and the importance of important political governance.The complicated land rights reform has triggered complex grassroots governance because the direct goal of local collective construction land property rights reform is not to improve grassroots governance,that is,villager autonomy,but to solve the urbanization’s thirst for land.It is not intended to be a wine,so it is a kind of village collective land property rights reform that"does not see the village collective".This point,although not directly clarified in Wu,has been clearly reflected in the subject matter of the book.The reform of rural land rights with priority clarification of the subject of collective land ownership can restart the constitutional logic of land rights politics,and can combine grassroots governance,that is,villager autonomy reconstruction with rural collective property rights reform and even rural revitalization.It means to simplify and guide the complicated and disorderly and quick-minded land-government political practice(pilot)with simple constitutional logic.The reform of the collective land property rights of the villages without"village collectives"has been transformed into the reform of the village collective land property rights of"rebuilding village collectives".Such a"constitutional politics"thinking has been vaguely presented in the conclusion of Wu.