乡村项目与规划驱动下的乡村治理——基于南京江宁的实证

AN EMERGING MODE OF RURAL GOVERNANCE DRIVEN BY PROGRAM AND PLANNING: EVIDENCE FROM JIANGNING, NANJING

21世纪以来,农村税费改革使得乡村基层政府财政能力显著下降,政府与农民间过去紧密的关系出现了疏离,农民间的生产合作日益松散——乡村出现了新的治理危机。在这样的背景下,各级政府自上而下对乡村进行了大量财政投入,大量乡村项目以及作为空间载体的乡村规划的出现,使得原先"中空"的乡村治理出现了崭新的面貌。本文以南京市江宁区为研究区,实证性地分析了该区众多乡村项目与规划的演变历程,并剖析了这一方式对乡村治理的作用机制;认为在项目与规划驱动之下,一个新的乡村治理方式已经初具雏形。这一方式由政府发起并主导,但已渗透到乡村社会之中。在治理改善过程中,"项目"成为了一种治理手段,而"规划"则构建了一个治理平台。

Since the turn of the new millennium, the rural tax reform has resulted in significant deficits of fiscal capacity for grassroots governments in rural China. The original tight relationship between cadres and villagers was alienated and the cooperation＂ between peasants became loose - new governance crisis emerged in the countryside. In terms of rural program and planning, multi-level governments invested a large amount of funds. The campaign has transformed the countryside significantly, and the ＂absence of any virtual village governance＂ situation manifests a new look. Based on the empirical study of Jiangning in Nanjing, this paper iUustrates the evolution of the rural program and planning, as well as unravels the mechanism of their effects on rural governance. To make a conclusion, this paper argues that a new mode of rural governance driven by programs is in the making. This mode was initiated by governments but has permeated into rural society. In the process of improving rural governance, rural program acts as an instrument and rural planning as a platform for negotiation.