村民自治基本单位再认识与村级治理体系重塑——从广西W县S村调查谈起

Rethinking of the Basic Unit of Villager Autonomy and Reconstruction of Village-level Governance System

村民自治是我国村级治理体系的重要组成部分。现行的村民自治基本单位是行政村。现实经验表明,行政村自治缺乏集体经济作为物质支撑,难以获得村民的社区认同,实践中也只能采取分而治之的"联邦制"治理模式,村民自治实践存在文本与现实之间的巨大张力。村民自治基本单位与农村社会结构的不适应,容易造成选举为少数政治精英所操控进而使得选举形式大于内容,村干部缺乏应有的民主监督而演变成分利的中间层,自然村的自治也容易被行政吸纳或者制度忽视而受到削弱。从改革和完善村级治理体系的角度看,可以探索将自然村作为村民自治的基本单位,将村委会改造为以公共服务和地方事务协调为主要职能的地方自治组织,建立一种"双层自治"的治理模式。

The basic unit of the present villager autonomy is the village administration.Real-world experience shows that administrative village autonomy in lack of support of a collective economy is difficult to get community recognition from the villagers.Therefore a federal model of divided governance is adopted in practice,causing a huge gap between documents and actual practice.The inappropriateness between villager autonomy and rural social structure may result in a pseudo election manipulated by a few political elites.Consequently,the village administrators often turn into benefit seeking groups without democratic supervision and village autonomy is thus weakened as it is either overwhelmed by administration or ignored by regulations.To reform and improve the mechanism of village governance,efforts may be made to explore the governance model of'two-level autonomy'with the natural village as the unit of villager autonomy and the village committee as the autonomy organization for the function of public services and coordination of local affairs.