政策试点与村民自治的有效实现形式

从2014年到2019年,以村民小组或自然村为基本单元的村民自治试点进入国家的顶层设计但又最终淡出,其背后具有深层次的政策逻辑。实证研究发现,该项政策试点表现出明显的阶段性特征:第一阶段,广东清远进行关于"村民自治重心下移"的地方预先自主试验;第二阶段,中央政府在总结清远经验的基础上进行政策调试和试点铺开,将试点核心内容由"在村民小组或自然村建村民委员会"转向"村民小组或自然村建村民理事会等组织",实现全国性的地区试验扩散;第三阶段,中央政府根据政策试点的反馈以决定政策维系或是中断。研究表明,铺开后的政策试点涌现出一系列的组织性难题,影响着政策创新的治理效能和扩散能力,导致该项政策最终淡出中央的顶层设计。汲取试点经验,应在组织能力建设和组织功能发挥等方面对政策试点不断进行优化,继续深入探索村民自治的有效实现形式。

Policy Pilot and Effective Realization Form of Villager Autonomy

From 2014 to 2019,the pilot project of villager autonomy with village groups or natural villages as the basic unit entered the top-level design of the country,but eventually faded out.It has deep policy logic behind it.The empirical study found that the policy pilot showed obvious stage characteristics:in the first stage,Qingyuan,Guangdong province,conducted a local pre-autonomous experiment on"the focus of villager autonomy moves down";in the second stage,the central government carried out policy adjustment and pilot implementation on the basis of summing up Qingyuan’s experience,and shift the core content from"building villagers’committee in villagers’group or natural village"to"building villagers’council and other organizations in villagers’group or natural village".In the third stage,the central government will determine whether to maintain or disrupt the policy relying on the feedback from the policy pilot.Studies show that while the pilots spread out,a series of organizational problems have emerged,which has influenced the governance efficiency and diffusion capacity of policy innovations,and led to the policy eventually fading out of the top-level design.To learn from the pilot experience,we should continuously optimize the policy pilots in terms of organizational capacity building and organizational function play,and continue to explore the effective implementation form of villager autonomy.