农村集体地权界定的治理逻辑及其路径分化——基于珠三角地区村级工业园改造的比较案例研究

The Governance Logic and Path Differentiation of Defining Rural Collective Land Rights—A Comparative Case Study on the Renovation of Village-level Industrial Parks in the Pearl River Delta

农村集体地权的界定和治理是当前乡村振兴与城乡融合发展的核心议题之一。本文尝试在“产权的社会视角”基础上做进一步拓展,以阐明当代中国农村集体地权界定实践的理论逻辑。通过对珠三角地区两个相邻制造业重镇推行村级工业园改造政策过程中形成的“基层村庄主导的多元化产权形式”和“地方政府主导的单一化产权形式”两种地权界定结果差异的比较案例分析,本文认为,首先,地方政府与基层村庄围绕集体土地产权界定的博弈结果受到国家治理结构和村庄社会结构的影响。在地方分权的国家治理结构下,集体地权的界定结果取决于村庄社会结构的差异并通过呼吁机制发挥作用。其次,地方政府能够通过正式制度的调整形塑村庄治理结构,由此强化或削弱基层村庄的集体行动能力,最终对集体地权界定结果产生持续性的影响。最后,在城乡融合发展的政策背景下,东部发达地区应该更加尊重村集体和村民的土地权益,积极探索地方政府与村集体合作开展土地开发的新机制。

The definition and governance of rural collective land rights are one of the core issues in current rural revitalization and urban-rural integration development.This article attempts to further expand on the“social perspective of property rights”to clarify the theoretical logic of rural collective land rights in contemporary China.Through a comparative case analysis of the differences in the results of defining land rights between the“diversified property right form dominated by grassroots villages”and the“single property right form dominated by local governments”formed during the implementation of the policy of renovating village-level industrial parks in two adjacent manufacturing towns in the Pearl River Delta,this article believes that:firstly,the game results between local governments and grassroots villages around the definition of collective land property rights are influenced by the national governance structure and village social structure.Under the decentralized national governance structure,the results depend on the differences in the social structure of villages and play a role through voice mechanisms.Secondly,local governments can shape the governance structure of villages through formal institutional adjustments,thereby strengthening or weakening the collective action capacity of grassroots villages,ultimately having a sustained impact on the results.Finally,this article emphasizes that under the policy background of urban-rural integration development,the eastern region should pay more attention to the land rights and interests of village collectives and villagers,and actively explore new mechanisms for local governments and village collectives to cooperate in land development.