“汲取”与“包容”:“农民上楼”的两种模式

“Absorption” and “Inclusiveness”: Two Models for Farmers' Urbanization

在过去十年里,城镇化是中国一项影响深远的公共政策,不仅塑造了新型的城乡关系,也极大地塑造了基层政府行为。乡镇政府在执行城镇化政策的时候,会呈现极端行为,即汲取的和包容的。县乡财政关系以及县级政府对土地财政依赖度是造成两种极端行为模式的关键原因。两种不同的城镇化模式在农民中间带来了相似的后果,农民对集中居住表现出不同程度的不满。因此,在推行农民集中居住的政策过程中,抑制基层政府非理性行为的有效措施是调整政绩激励机制的指标与结构,同时,用制度化的方式确保农民参与此项政策的基本权利,建立农民与政府之间的合作关系。

During the past decade, urbanization has become a far-reaching public policy in China, not only in the sha- ping of the new urban-rural relationship, but also in the shaping of the grassroots government behavior to a great extent. When the township government is implementing the policy of urbanization, it will show extreme behaviors, namely absorp- tion and inclusiveness. The financial relationship between the county and the township, and the financial dependence of the county government on land, are the key reasons to explain these two extreme behavioral patterns. The two different urbani- zation patterns have brought similar consequences among farmers, who show varying degrees of discontent with concentrated residence. Therefore, in the process of implementing the policies of farmers＇ concentrated residence, the effective measures to curb the irrational behavior of the grassroots government are to readjust the indicators and structure for performance and incentive mechanism. At the same time, it is necessary to take institutionalized initiatives to ensure the basic rights of farm- ers who participate in the process, and to establish cooperative relationships between the farmers and the government.