从政治整合到政策统筹:中国农村基层治理70年的路径与趋向

From Political Integration to Policy Coordination:the 70-year Path and Trend of China’s Rural Grassroots Governance

分析政党国家对农村基层治理的逻辑转换及其特点,对于理解当前中国国家治理具有重要意义。1949年建立起工农联盟为基础的政党国家,通过国家主导政治整合方式对农村进行改造和建设。此种政治整合主导逻辑在于权力形态和治理结构的高度中心化,即政党及其组织运行成为基层治理的中心。1978年开启农村改革以来,国家通过政策统筹方式调整国家与基层社会关系,分为体制改革重塑基层治理结构、制度建设培育基层民主、农村综合改革统筹乡村发展三个阶段。新时代背景下,乡村振兴战略在于衔接国家治理目标与农村社会内生性演变逻辑,平衡国家政策导向、农村发展实际与农民现实需求三者之间的利益关系,引导基层治理现代化转型,促进农村综合发展。

Analysis of the logical transformation and characteristics of the party-state in rural grass-roots governance is of great significance to the understanding of the current national governance in China.The party state,established in 1949 on the basis of worker-peasant alliance,has transformed and built the countryside through the state-led political integration.The leading logic of this kind of political integration lies in the highly centralized power and governance structure,that is,the operation of the political party and its organizations constitute the center of grass-roots governance.Since 1978 when the rural reform began,the state has adjusted the relationship between itself and the grassroots society through policy coordination.The adjustment is carried out in three stages:system reform to reshape the grassroots governance structure,institutional construction to cultivate grassroots democracy,and rural comprehensive reform to coordinate overall rural development.In the new era,the strategy of rural revitalization relies on connecting the goal of national governance and the logic of the rural society’s endogenous evolution;balancing the interest relationship among the national policy orientation,the reality of rural development and the practical needs of farmers;helping modernizing rural governance;and promoting the comprehensive development of rural areas.