农村集体统筹能力的式微及其基层治理效应——珠三角多地农村股份合作制改革的考察

The Decline of Overall Coordinating Ability of Rural Collective and Its Effect on Grassroots Governance——A Practical Investigation Based on the Reform of the Rural Stock Cooperative System in the Pearl River Delta

股份合作制改革是农村集体产权制度改革的重要内容,对基层治理及农民与国家关系产生了深刻影响。农村股份合作制改革如以“股权量化”与“政经分离”为主要方向,一定程度上虽有利于缓解利益分配矛盾与代理人寻租困境,但珠三角多地经验表明:这不仅难以从根本上解决上述困境,还可能诱发更复杂的基层治理效应。其深层原因在于农村集体统筹能力的式微,包括集体土地所有权的虚化、集体收益分配权的剥离、集体土地经营权的锁定以及股份合作制与集体经济制度之间存在内在矛盾等。乡村振兴背景下,应以强化集体统筹能力的基层有效治理思路替代“重分轻统”的产权改革思路,构建一种兼顾经济效益与社会效益的集体经济运行机制,实现集体经济与基层治理的良性互动。

The reform of the rural joint stock cooperative system is an important part of the reform of the rural collective property rights system,which has a profound impact on the grassroots governance and the relationship between farmers and the state.“Quantification of equity”and“separation of politics and economy”are the main directions of the reform of the rural joint-stock cooperative system.To a certain extent,it helps to alleviate the contradiction in benefit distribution and the rent-seeking dilemma of the agent.However,the experience of many places in the Pearl River Delta shows that this is not only difficult to fundamentally solve the above dilemma,but may also induce more complex grassroots governance effects.The underlying reason lies in the decline of the rural collective coordinating ability,including the virtualization of collective land ownership,the stripping of collective income distribution rights,the lock-in of collective land management rights,and the inherent contradictions between the joint stock cooperative system and the collective economic system.In the context of rural revitalization,the idea of“emphasizing division over unification”should be replaced by effective grassroots governance ideas that strengthen collective overall coordinating capabilities,so as to construct a collective economy operating mechanism that takes into account economic and social benefits,and realize the benign interaction between collective economy and grassroots governance.