控制的自治:村级治理半行政化的形成机制与内在困境——以城乡一体化为背景的问题讨论

Control of Autonomy:The Formational Mechanism and Inner Issues of Semi-administration of Village Governance——Under the Background of Integration of Urban and Rural Areas

在城乡一体化的背景下,沿海发达地区开启了新一波的村治改革,其基本取向是村级治理半行政化,其主要内容是:通过"议行分离"的分权改革,将村委会原有的自治权转移至镇聘执行单位,村委会变为基层政府的科层化延伸。同时,项目制作为村级治理半行政化的促成机制,强化了村委会作为乡镇政府行政工具的性质。村级治理半行政化由城乡一体化时期的管理需求推动,具有一定的实践理性意义。但是,村级治理半行政化在推进过程中也面临诸多困境,从而使其改革实效受到影响;而且,它与《宪法》和《村民委员会组织法》等法律确立的村民自治制度相冲突,面临制度合法性问题。

Under the background of integration of urban and rural areas,China's developed coastal regions start a new cycle reform of village governance whose tendency is serm-adrninistratiori,and the main contain is to transfer the villagers committee's autonomous power to executive unit that employed by township government through power division of 'separation of council and execution',thus the villagers committee becomes bureaucratic extension of township government.Semi-administration is driven by the needs of social governance in the period of integration of urban and rural areas,therefore it has the value of practical rationality.However,semi-administration of village governance has faced many problems in the process of promotion,which affects the result of the reform.Also,the semi-administration of village governance conflict with China's 〈Constitution〉 and 〈The village committee organization law〉,facing the problem of institutional legitimacy.