当代中国农业政策变迁研究

【作者】 李青；

【导师】 钱再见；

【作者基本信息】 南京师范大学 ， 中国政府与政治， 2021， 博士

【副题名】基于政策文本的话语分析

【摘要】 中国作为一个农业大国,解决“三农”问题是国家现代化建设的基础性任务,因而是党和国家的工作重心。从国家治理意义上来说,政策兴农是乡村振兴和乡村治理现代化的重要面向,那么,从党和国家农业政策的变迁来观察兴农历程便有了现实指向。在政策变迁研究中,话语是一个值得认真对待的关键变量,通过政策话语变迁的直观呈现有助于深入揭示政策变迁的微观机理。基于此,本文以新中国成立以来的农业政策变迁为研究主题,构建“政策情境—政策话语—政策效应”的政策话语分析框架,运用政策文本研究方法对新中国成立以来国家层面颁布的农业政策进行量化分析,依据农业政策制定总体趋势与重要历史节点,将农业政策变迁划分为集体化时期、家庭联产承包责任制时期、税费改革时期和乡村治理现代化时期,勾勒出农业政策话语变迁的基本历程与阶段性特征,以期发现党和国家实现农业现代化的政策意涵。集体化时期,土地改革、农业合作化、人民公社化等情境形塑了农业政策坚持实现“耕者有其田”、坚持人民当家主等政策理念,逐步确立农业生产领域的社会主义关系,将中国传统分散的乡村社会纳入到国家治理架构中来。在农业政策的话语文本上,主要体现在“阶级话语”对农村社会的渗透、“国家话语”的进一步灌输与演变、“革命话语”的凸显与消解等方面。在政策效应方面,农民的个体经济在短时间内占据主要形态,促进了国民经济的恢复与发展;农业合作化阶段的政策话语实现从个体所有制到社会主义所有制的转变,农业政策话语凸显出国家对乡村社会的权力介入;而后,“政社合一”体制下农业政策话语具有集体所有的“固化”特征,忽视了乡村社会成员的生存需求和发展需求。家庭联产承包责任制时期,家庭承包责任制确立,乡镇企业逐渐兴起,村民自治开始出现,这一政策情境形塑了以人为本、发扬基层民主、推进农业现代化发展等农业政策理念。农业政策的话语文本重点表现为商品话语的初显、“市场经济”在农业生产要素中的扩张以及自治话语的伴生。这一时期政策效应让农业结构和生产方式发生前所有未有的变化,彻底解决农民温饱问题;农业经济逐渐由计划经济向市场经济体制过渡,推进了农业市场化过程;农民经济获得自由的同时,也增强了农民的民主意识和政治参与意识,形塑了基层民主政治观念。税费改革时期,在农业税费改革议程的试点与散布、城乡差距凸显的效应叠加以及新农村建设战略升级的政策情境下,农业政策的话语文本主要表现在“让利”话语的显现、“反哺”话语的转变以及“建设”话语的集成三个方面,政策效应上实现了国家对农业从“多取”到“多予”的转变,促进了农民增收;区域协调机制的逐步完善,努力缩小城乡发展差距;同时,唤醒了农民的主体意识,农民的独立性、自主性、现代性进一步增强。乡村治理现代化时期,农业农村现代化、全面建成小康社会的提出以及乡村振兴战略谋划的政策情境,形塑了农业政策话语的治理理念、以人民为中心理念以及“创新、协调、绿色、开放、共享”的发展理念。农业政策的话语文本主要体现在“服务”话语、“脱贫”话语以及“振兴”话语的交织融合。就农业政策话语的政策效应而言,首先,农业生产能力持续增长,农业发展方式转变明显取得了成效,中国特色社会主义农业现代化模式正在逐步形成;其次,农民生活水平获得改善,农业农村面貌焕然一新;最后,顶层制度设计更加全面完善,进一步推进乡村治理工具的不断创新,激发了农村发展活力。当然,农业政策话语的演进是与国家现代化建设的历史进程紧密关联的,有着特定的内在规律。具体而言,从话语实质来说,当代中国农业政策变迁是国家与农民利益不断调整、农民权益逐渐增加的过程;从话语结构来说,农业政策变迁在话语内容的结构上遵循国家主导下对“保护带”调整与更新的渐进性变迁路径,但无论政策如何变迁,始终离不开党的领导、脱贫致富和农业现代化这三个恒常不变的因素;从动力机制来说,农业政策变迁是环境、观念、关键行为者相互作用的结果。回顾当代中国农业政策变迁的话语历程,政策兴农取得了显著成就。面向未来,农业政策的制定和实施应始终坚持党的全面领导、人民当家做主为根本话语取向,以不断扩大农民福祉、增进农民利益为核心,既要符合政策变迁的一般规律,也要适应国家治理体系和治理能力现代化的时代需求。更多还原

【Abstract】 China is a big agricultural country that attaches great importance to the issues relating to agriculture,rural areas and rural people.So,these issues has a central place on the work agenda of the Party.In the sense of national governance,policy to prioritize the development of agriculture is the main tool to realize agricultural modernization.Then,there is a realistic basis observing the course of agriculture policy changes.However,discourse is a significant perspective on the research of policy change that present the process and inherent principles.Based on this,the dissertation takes the discourse of agriculture policy changes as basic research objects and constructs an framework of “policy context-policy text-policy effect” to explore the attention allocation and phrase characteristics of policy text by conducting a bibliometric method since the founding of the People’s Republic of China.Taking overall trend,keyword frequency and significant historical points into consideration,we classify the discourse change into the period of collectivization,household contract responsibility system,and fee reform,and the governance modernization.During the period of collectivization,under the context of land reform,agricultural cooperation and people’s commune,shaping concepts adhering to the people’s dominant position,people are the masters,thereby gradually establish agricultural socialist relations.The policy text is reflected the penetration of “class discourse”,the indoctrination and evolution of “national discourse” and the prominence and gradual elimination of “revolutionary discourse”.As to effects,individual ownership occupied the main form in a short time which promoted the recovery economy.The transition from individual to socialist ownership highlighted the power intervention into the rural;policy discourse has the characteristic of“solidification”,ignoring the survival and development needs of rural members.The establishment of household contract responsibility system,township enterprises and villager autonomy began to take the stage shaped policy concepts putting people first,grassroots democracy and agriculture modernization.The discourse focuses on the appearance of commodity discourse,the expansion of market economy and the concomitant discourse of autonomy.The policy effects have brought about unprecedented changes in agricultural structure and production,completely solved the problem of farmers’ food and clothing.Agricultural economy gradually transitioned from planned system to market system which promoted the process of agricultural marketization.When peasants’ gained economic freedom,the awareness of democracy and political participation have been cultivated,shaping their idea of democracy.During the period of tax and fee reform,in the context of the agricultural tax and fee reform,the increasing gap between urban and rural areas and the strategic upgrade of new rural construction,the discourse is mainly manifested in three aspects: the appearance of “giving benefits”,the transformation of “feedback to agriculture” and the integration of“construction”.In terms of policy effects,discourse has been transformed from “take more” to “give more”,which has promoted the increase of farmers’ income;the gradual improvement of the regional coordination mechanism has narrowed the gap between urban and rural development;at the same time,it has awakened farmers’ awareness of independence,autonomy and modernity.During the period of rural governance modernization,the goal of agriculture modernization,building a well-off society in an all-round way and rural revitalization strategy have shaped policy concepts of governance,people-centered and five development concepts.The discourse is mainly embodied in the integration of“service” “poverty alleviation” and “revitalization”.As to policy effects,first,the agricultural production capacity continues to grow,the transformation of development mode has made achievements.Second,the living standards of farmers have been improved,and rural areas have taken on a new look.Finally,continuous innovation of governance tools has stimulated the vitality of rural development.Of course,the evolution of agricultural policy discourse follows a specific internal logic.Specifically,in terms of discourse essence,policy change is interests-oriented by the adjustment of States and Peanuts with the gradual increase of farmers’ rights.Meanwhile,it presents three phases of characteristics: the state’s dominance,the game between the state and the peasants,and the sharing of the state and the peasants.In terms of discourse content,government takes a leading role with gradual change,but it is always inseparable from three fixed elements of party leadership,poverty alleviation and agricultural modernization.In terms of dynamic mechanism,agricultural policy changes are the result of the interaction of the environment,concepts,and key actors.Looking back the change of agricultural policy discourse in contemporary China,significant achievements have been made in policy to prioritize the development of agriculture.Focusing on the future,the formulation and implementation of agricultural policies should always adhere to the party’s overall leadership,and people-centered as the fundamental orientation,with the purpose of expansion and enhancement of farmers’ well-being and interests.It must not only conform to the general laws of policy changes,but also adapt to the modern needs of the country’s governance system and governance capabilities.更多还原