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1949年以来中国乡村政权职能与农民负担关系研究
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【内容提要】1949年以来，在土地改革的基础上，政府的力量第一次真正深入到了农村基层，农村基层政权经历了私有制基础上的乡镇制；公有制基础上的人民公社制（“政社合一”）；以及1983年以来建立在多种经济成分基础上的乡镇制。无论哪种体制，作为农村基层政权，它都始终存在着两个基本要素：一是它的“事权”，即他到底要承担那些责任和事务；二是它的“财权”，即它的经费（财政和其它收入）来自何处，有多少，能否与它的事权相匹配。而1949年以来的中国，随着现代化的快速推进，农村基层政权的“事权”不断扩大，所承担的事务越来越多，而它的“财权”却很有限，受到农村经济本身的制约。这种“事权”与“财权”的严重失衡，在“自上而下”的官僚体制和农村民主政治尚不完善的条件下，必然导致农村基层政权将负担以各种形式转移到农民头上。
【关键词】政府职能 农民负担 转移支付
Abstract: After 1949,on the basis of the Land Reform, for the first time in history government power really succeeded in going deep into the countryside. Political power in the countryside has gone through different systems, namely, the township system based on private ownership, the People’s Commune system based on public ownership (“intergration of government administration with commune management”) and the township system based on multiplicity of ownership. Whichever the system, political power in the countryside, authority at the grass-root level as it is, always, consists of two basic elements: its “power to do things”, or the duties and affairs it is charged with, and its “power to use money”, or where its funds come from, how much money is available and whether the money meets the needs of its “power to do things”. Since 1949, along with the rapid progress of China’s modernization, the “power to do things” of the countryside political power has been unceasingly expanding, with more and more affairs to be carried out but with the “power to use money” still quite limited by the conditions of the rural economy itself. Such a serious imbalance between the “power to do things” and the “power to use money” inevitably results in the countryside grass-root political power shifting all kinds of burdens onto the shoulders of the farmers.
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