村庄乱象、制度创新与规则之治——基于“宁海36条”的田野调研

The Chaotic Scene of Villages、System Innovation、Govern by the Rule——Based on the investigation of “Ninghai 36”

社会治理现代化的核心,重心在基层,重点在农村。近年来,村庄乱象倒逼地方政府创新,进而形成富人治村规则,但在村庄利益结构保持不变的情况下,乡村治理需要在复杂制度成本和富人治村分利格局中寻找平衡。本文主要运用质性研究方法,聚焦"法治中国建设的村级样本"浙江宁海县村级权力清单36条,通过对县乡村关系视野下宁海36条实践全过程的梳理,力图展现出东部沿海利益密集型村庄治理中制度创新的社会基础、实践逻辑及其与联村干部制度、涉农资金整合等制度关联的完整图景。研究表明,制度创新需要与之高度契合的社会基础,制度推广需要考虑其社会基础之上的制度成本,制度运行的实践逻辑是在县乡村关系的完整链条中展开,制度关联创新也需要服从于整个基层治理体系的有效性和适用性。

The core of social governance modernization is at the grassroots level,with emphasis on rural areas.In recent years,the chaotic scene of villages has forced local governments to innovate,thus shaping the rules of＂govern by the rich＂. Under the condition that the interest structure of villages remains unchanged,rural governance needs to find a balance between the complicated system cost and the pattern of dividing the profit by the rich. This paper mainly uses qualitative research methods,through the analysis of 36 practices in the county rural relations,tries to show the social basis of institutional innovation in the eastern coastal interests of governance,practical logic and the integrated picture of the village cadres system,agriculture-related funds integration. Research shows that institutional innovation needs a highly social basis,system extension needs to consider the system cost of its social foundation,the practice logic of system operation is the complete chain of county rural relations,and the system linkage innovation needs to be subordinated to the effectiveness and applicability of the grass-roots governance system.