乡村治理视域下村级组织功能分离改革的理论与实践——基于江苏省两个案例的考察

The Theory and Practice of the Reform of Function Separation of Rural Grassroots Organizations from the Perspective of Rural Governance:Based on Two Cases in Jiangsu Province

村级组织功能分离改革是农村集体产权制度改革的重要制度组成,蕴含着优化乡村治理的政治逻辑。该制度基于赋权理论设计出从农民、集体经济组织、村“两委”到基层政府的多层次赋权链条,旨在保障农民集体资产股份权能,强化集体经济组织市场权能,明确村“两委”领导、管理服务和自治职能,以及厘清基层政府在乡村治理中的功能权责,实现乡村多元主体治理秩序重构。以江苏省昆山市和溧水区的改革为案例,昆山市坚持公共服务先动模式,溧水区则采取“村社分账”先行模式。两地的改革实践呈现出差异化的过程样态,但均较好地完成了理论预设的整个赋权链条。理论和实践表明,村级组织功能分离改革能够有效改善乡村治理。但是,改革后的乡村治理仍然面临一些潜在困境,需要进一步优化制度设计、健全配套政策、创新实践路径,以全面激发这一改革在乡村治理中的积极作用。

The reform of functions separation of rural grassroots organizations is a vital component of the reform of rural collective property rights system,which contains the political logic of optimising rural governance.Based on the theory of empowerment,the system is designed to provide a multi-level empowerment chain from farmers,collective economic organisations,village“two committees”to the grassroots government.The multi-layered empowerment chain aims to safeguard the shareholding rights of farmers'collective assets,empower collective economic organisations in the market,clarify the leadership,management services and self-governance functions of village“two committees”,and specify the functions and responsibilities of the grassroots government in rural governance,so as to realise the restructuring of the governance order of multiple entities in the countryside.Take the reform of Kunshan City and Lishui District in Jiangsu Province as an example,Kunshan City adheres to the public service first model,while Lishui District adopts the“village and community ledger sharing”model.The reform practices of the two places show a differentiated process,but both have achieved good results.Theory and practice have demonstrated that reform of functions separation of rural grassroots organizations can effectively improve rural governance.However,there are still some potential dilemmas facing rural governance after the reform.Further optimisation of institutional design,sound supporting policies and innovative practices are needed to fully stimulate the governance effects of the rural“Separating Economy from Politics”reform.