向佳 黄继福

摘要：在30多年的治理实践中，中国逐渐形成“乡政村治”的农村基层治理模式。其中，乡镇政府和村委会之间的关系失调阻碍着乡-村社会的进一步发展。以村民自治理论以及“乡政村治”的治理模式为视角，得出乡-村关系之间的冲突形式表现为：经济领域的财政矛盾、资源分配矛盾，政治领域的行政干预矛盾、指标任务矛盾以及社会管理领域的乡-村建设规划矛盾。并分析了其法律缺位、民众素质、民主监督缺失、体制压力四个方面的原因，提出了构建政府服务体系，健全政府绩效评估机制；强化民主监督机制，完善法律法规，创新治理模式等协调优化对策。

关键词：村民自治；乡-村关系；乡政村治

中图分类号：C912.82 文献标识码：A

文章编号：0439-8114（2018）19-0024-04

DOI：10.14088/j.cnki.issn0439-8114.2018.19.005 开放科学（资源服务）标识码（OSID）：

The Contradiction of Township-Village Relationship and Its Coordinated Countermeasure in the Background of Villager Autonomy：Taking X County as an Example

XIANG Jia1，HUANG Ji-fu2

（1.Public Administration School，Hohai University，Nanjing 210098，China；

2.China Rural Research Institute，Central China Normal University，Wuhan 430079，China）

Abstract： In more than 30 years of governance practice， China has gradually formed the rural grassroots governance model of "township government and villager self-government". Among them， the imbalance between the township government and the village committee hinders the further development of the township-village society. From the perspective of the theory of self-government of villager and the governance model of "township government and villager self-government"， concludes that the conflict between township-village relationship is manifested as：financial contradiction and resource allocation contradiction in the economic field. The contradiction of administrative intervention and the contradiction of index task in the political field， the conflict of Township-village construction planning in the field of social management. The reasons of the absence of law， the public quality， the lack of democratic supervision and the system pressure are anylazed， And some suggestions are proposed， such as puting forward to construct government service system， improving the government performance evaluation mechanism； strengthening the democratic supervision mechanism， improving laws and regulations， and innovating governance models and other coordinated optimization strategies.

Key words： villager autonomy； township-village relations；township government and villager self-government

自人民公社解體和家庭联产承包责任制实施后，中国逐渐形成了“乡政村治”的基层治理模式。20世纪80年代以来，村民自治的实行使农村的政治生活格局产生了极大的变化[1]，1988年，《村民委员会组织法》明确规定村民自治的内容以直接、平等投票为原则的民主选举；以村民会议为主要形式的农民参与式的民主决策；以村规民约、章程为基本形式的民主管理；以村务公开、群众评议为特征的民主监督”四大系统程序为主[2]，同时以法律的形式明确了乡镇政府和村委会之间是指导与协作的关系，但在现实执行中这种关系往往会发生偏离，并造成乡、村关系互动中的矛盾[3]。2018年，中央一号文件《中共中央国务院关于实施乡村振兴战略的意见》中指出，始终把解决好农业农村农民问题作为重中之重，国家对“三农”问题强烈关注。……