【作者】 陈琳；

【导师】 项继权；

【作者基本信息】 华中师范大学 ， 地方政府学， 2017， 硕士

【摘要】 村民自治制度是我国的一项基本政治制度。在村民自治的组织体系及权力结构中存在基层党支部和村民委员会两个组织和权力主体。村党支部是中国共产党在农村的基层组织,在村民自治中发挥领导核心作用,领导和支持村民委员会行使职权;村民委员会经由村民选举产生,代表村民进行自治,管理村庄的日常事务,是村民自治和村级治理的重要机构。由于村民委员会和村党支部的产生方式、人员构成、工作机制及权力范围不尽相同,在实践中依然时常出现一些矛盾和冲突。如何妥善处理村“两委”的关系,也一直是村民自治实施以来农村基层治理中的突出问题。为了加强和改善党支部的领导,消除村党支部和村委会两委之间的矛盾,不少地方进行了诸多的探索,如实行“两票制”、“两推一选制”、“公推公选”等方式,创新村党支部和村委会的选举方式,并通过选举实现了村两委“一肩挑”。特别是新世纪以来,“两委一肩挑”已经成为最普遍的方式。村两委“一肩挑”模式的基本特点是通过法定程序,使村民委员会主任和村党支部书记由同一人担任,村两委的其他成员也交叉任职。此举旨在通过两委人员交叉兼任的方式加强党支部的领导,减少村两委之间的矛盾,实现两委关系的和谐。当前,“两委一肩挑”模式也得到中央的肯定和支持,各省市地方都大力推行,在实践中日益普遍化,在部分地区甚至达到了百分之百的比例。然而,长期以来,人们对于“两委一肩挑”的认识和评价并不统一,众说纷纭,褒贬不一。如何认识和评判村民自治中两委一肩挑的实践,并在理论上解释其存在和发展的逻辑,依然是当前重要的实践和理论问题。为此,本文旨在通过对“两委一肩挑”形成的历史及实践的效果的考察和分析,探讨为什么村级两委关系最终走上了“一肩挑”的道路?两委“一肩挑”的实践形式和运行机制有什么特点和优点?存在什么困难、问题和风险?未来的发展趋势如何?这些都是当前党的领导、村民自治和基层治理中需要思考和探索的问题。本文认为,村两委一肩挑具有实践上和政治上的客观必然性。特别是村两委组织和权力的二元化及运行机制缺乏有效的制度规范,常常造成两委的矛盾,内耗严重;两委分设增加人员和财政负担,不仅不利于村民自治,也有损党的领导。为此,各地尝试通过两委“一肩挑”的方式以消除村治权力的二元化,加强村党支部的领导、实现村治权力一体化并提升乡村治理效能。这是党加强对村民自治及基层治理的领导的一种方式。不过,也必须看到,由于两委“一肩挑”,村党支部书记统领村党支部和村委会的权力和工作,工作责任和负担重,也易于成为基层矛盾的焦点;由于两委权力集中,增加了监督的难度;有的党务和村务工作安排失当,也存在淡化党的领导的风险;有的两委实现一肩挑的选举不规范;有的书记对自己政治上、经济上和生活上要求不严,滥权腐败,也损伤权力的合法性等等。为此,本文提出必须进一步完善支部选举和村民自治相关制度,扩大基层民主尤其是党内民主,妥善处理好党支部对村民自治的支持与领导关系,建立和完善权力的制约和监督机制,规范“一肩挑”模式下的选举机制以及实现党委领导下的多元参与,使党支部的领导与村民自治有效地统一起来。更多还原

【Abstract】 Villagers’ Self Governance System is a basic political system in China.In the organizational system and power structure of the villagers autonomy,there are two organizations and the main bodies,namely basic Party branch and villagers committee.The village Party branch is the basic level organization of the Communist Party of China in the countryside.It plays a leading role in the villagers’ Autonomy,leading and supporting the villagers committee to exercises the authority.The village committee is elected by villagers to represent them to put Village Autonomy into practice and manage the daily affairs of the village.It’s the important organization used to do Village Autonomy and village governance.As their ways of election,personnel composition,working mechanism and the scope of authority are different,there are many contradictions and conflicts in practice.Since the implementation of villager autonomy,how to properly handle the relationship between "two committees" of the village is the prominent problem in rural grassroots governance.In order to strengthen and improve the leadership of the village Party branch and eliminate contradictions between the two committees,many places carried out a lot of exploration,such as implementing "The Two-Ballot System"," The Two-Ballot and One-Election System" and "Publ ic Recommendation and Publ ic Election".They innovate electoral methods of the village Party branch and village committee,and achieve Mono-Party-Village Committee by election.Especially since the new century,Mono-Party-Village Committee has become the most common way.Basic characteristics of Mono-Party-Village Committee is that the chairman of the village committee and Party branch secretary of the village are taken by the same person through legal procedures and some other occupations of the village committee and village Party branch of the village are also taken by same people.It is used to strengthen the leadership of the village Party branch,reduce conflicts between "two committees" of the village and make the relations between the two committees harmonious by the way of personnel of "two committees" of the village holding posts concurrently.Currently,the mode of Mono-Party-Village Committee is encouraged by the central government,and provinces and cities are vigorously promoting.The implementation of the mode of Mono-Party-Village Committee is more and more universal.In some areas,the proportion of implement of the mode of Mono-Party-Village Committee even reaches one hundred percent.For a long time,however,people are not unified for the understanding and evaluation of Mono-Party-Village Committee.Opinions are widely divided.People pass different judgements on it.How to understand and evaluate the practice of Mono-Party-Village Committee in villager autonomy and explain the logic of its existence and development in theory are also the important practical and theoretical issues currently.By studying and analyzing the history and practice effect of Mono-Party-Village Committee,this paper is to explore why the relationship of "two committees" of the village finally head down the path of Mono-Party-Village Committee,the characteristics and advantages of its practical form and operating mechanism,its difficulties,problems and risks,and its future trend of development.These are the issues that need to be considered and explored in the party’s leadership,villagers’ autonomy and grassroots governance.This paper believes that Mono-Party-Village Committee is inevitable in practice and politics.Especially the duality of organization and power of two committees of the village and lack of effective institutional norms always cause contradicts and serious internal friction.The two committees setting up in a smaller unit increases personnel and financial burden,which is not conducive to the villagers’ autonomy,but also detrimental to the leadership of the party.Therefore,all places attempt to eliminate the duality of rural-ruling powers,strengthen the leadership of the village Party branch,achieve integration of rural-ruling powers,and improve the rural governance efficiency.This is a way for the party to strengthen the leadership of the villagers autonomy and grassroots governance.However,we must also realize that because of Mono-Party-Village Committee,village Party branch secretary command the power and work of the village Party branch and village committee,their Job responsibility and burden are heavy so they are easy to become the focus of the grassroots contradictions;because of the two committees’centralization of power,the difficulty of supervision has increased;some party affairs and village work arrangements are improper,there is risk of weakening the party’s leadership;some elections of two committees to realize Mono-Party-Village Committee are not standardized;some secretaries are not strict to themselves in politic,economic and life so that power abuse and corruption damage the legitimacy of power,etc.Therefore,this paper presents that we must further improve the branch election and villagers’ autonomy system;expand grassroots democracy especially the inner-party democracy;properly handle the relationship that Party branch’s support and leadership to the villagers’ autonomy;establish and perfect the mechanism of supervision and restriction of power;standardize the election mechanism under the mode of Mono-Party-Village Committee and realize the pluralistic participation under the leadership of the Party committee,so as to effectively unify the leadership of the Party branch and the villager autonomy.更多还原