吸纳性规制:农村集体资产经营中的基层政府行为模式

Absorptive Regulation:Behavior Pattern of Grassroots Government in Rural Collective Assets Management

在农村集体经济全面转向以集体土地和物业出租为主要形式的租赁型经济条件下,基层政府针对集体资产经营的行为模式需要更加深入的探讨。基于政府规制理论的演进脉络和场景变迁,提出“吸纳性规制”概念,用以分析基层政府主导集体资产经营的政策实践。经验研究发现,基层政府一方面完善集体资产持有、交易、使用等环节的具体规则,持续推动行政监管扩容;另一方面通过基层组织支配和集体资产代管,完成对集体资产经营权的接收。二者构成了吸纳性规制的不同实践层次,展现了行政权力的边界延展与行政系统的职能扩充。在这一过程中,基层政府注重寻求“合法性策略”与“实质性目标”之间的平衡,将规范经济秩序、提高经济绩效作为获致集体资产经营主导权的重要基础。吸纳性规制具有促进集体经济规范运行、提高集体收益的积极功能,但是也可能带给基层政府更多应对复杂市场环境、介入集体产权纠纷的压力。

In the rental-based economy that rely on the rural collective land and property leasing,the grassroots government’s behavioral expression facing the rural collective assets management needs further research.Based on the theory of government regulation,this paper proposes the concept of“absorptive regulation”to analyse the policy practice that the grassroots government leads the rural collective assets management.The empirical study shows that,on one hand,the grassroots government improves the rules of collective assets’holding,transaction and use,which achieves the expansion of administrative supervision.On the other hand,the grassroots government obtains the power of management of collective assets by dominating the rural autonomous organizations and collective assets commission management.The two types of practice mentioned aboved constitute different levels of absorptive regulation and reveal the extension of executive power and function.In the process,the grassroots government lays emphasis on the balance between legitimacy strategy and substantive objective,through standardizing the economic order and improve economic performance.The absorptive regulation can strengthen the standardization and efficiency of collective economy,but the corresponding risk from complex market environment and collective property dispute cannot be ignored by grassroots government.