后税费时代村级组织功能异化及其治理研究

村级组织是我国农村地区公共事务治理的重要主体，在贯彻落实党和政府政策方针、依法管理区域内公共事务方面发挥着重要作用。后税费时代村级组织所处外部环境发生较大变化，内部治理资源短缺，业绩考核呈行政化、科层式，乡村文化中功利观念凸显，从而诱发了组织的异化行为，表现为组织成员“离村化”、集体资产处置“谋私化”、组织选举“资本化”、组织运行“黑恶化”和干群关系“离心化”。结果造成农村公共服务供给缺失、农民群众利益维护机制断裂、村级组织公信力下降、党和政府在农村的执政基础动摇等严重危害。因此，可从保障组织治理资源、强化村级组织公共服务供给责任、加强村集体资产阳光监督、完善村级组织架构、培育乡村公共性文化等方面，促使村级组织回归正常功能状态。

A Study on the Functional Alienation of Village-level Organizations in the Post-agricultural Tax Era and Its Governance

The village-level organization is one of the most important governing subjects in China’s rural areas. It plays an important role in the implementation of public policy and the management of regional public affairs. In order to eliminate the contradictions caused by the levy of agricultural tax, the government abolished agricultural tax in 2006, which has won praises from all circles of the society. However, it has changed the logical basis of village-level organization’s behavior, showing a phenomenon of departure from the goals of village-level organization in practice. Based on the review of relevant literature, we made a questionnaire survey on Zhejiang, Anhui, Jiangsu, Hubei, Henan, Shanxi and Chongqing provinces, combined with case studies, summarized the five forms of functional alienation of the village-level organization in the post-agricultural tax era. Village officials often left their posts and went to work or live in the city. They embezzle collective assets and win village elections by the money. Evil forces rule the village-level organization and the relationship between village officials and peasants has centrifugal tendencies. Serious consequences follow. First of all, there is a serious lack of rural public service supplied and transformed stagnation of service-oriented organization. Secondly, the role of village-level democracy has declined and the interests of the peasants maintenance mechanism have fractured. Thirdly, the foundation of the village-level organization suffers more weakness, slackness and loss of credibility. Lastly, the legitimacy of the village-level organization is in question. Based on the theory of resource dependence, the reasons for the functional alienation of village-level organization in the post-agricultural tax era are the change of external environment such as financial resources and institutional system, the internal governance resources shortage problems, the administrative assessment under the pressure system and the increasing of a utilitarian culture. According to the strategic task of the 18th National Congress of the Communist Party and the promotion to new rural construction, we give some advices to make the village-level organization return to its normal function: establishing the system of stable funds, enriching the governance resources of village-level organizations, promoting the public services, enforcing the responsibility of village officials, improving the “Sunshine Village Project”, establishing and perfecting the supervision system of village affairs, improving the structure of village-level organizations, establishing the village official exit mechanism, cultivating the rural public culture and modern civic awareness. Using questionnaire surveys and case studies, we grasp the current performance of the village-level organization, observed the functional alienation in the post-agricultural tax era, and put forward some feasible countermeasures. A limitation is that we were unable to follow different levels of economic development to classify the functional alienations of the village-organization in different areas.