农村城镇化进程中农村集体经济组织产权制度变迁

　　——对无锡市农村集体经济组织产权制度变迁的剖析

　　【摘要】 自1979年以来，无锡市非农产业发展迅猛。劳动力就业结构发生了重大变化，非农业劳动力就业比重从1978年的44%上升到2003年的80%左右。非农业产值比重从1978年的85.7%上升到2003年的96%。正是由于非农产业劳动力就业比重的不断提高，无锡市人均GDP从1978年的636美元上升到2003年的5200美元。然而，同期非农村人口却从19.3%只上升到41.3%。反映无锡市城镇化水平的NU比值在2左右，是正常水平1的近2倍。尽管无锡市城镇化水平高于全国平均水平，但于其经济发展水平及其非农化水平相比，其城镇化水平却相对滞后。无锡市农村城镇化水平滞后的主要影响因素有城乡二元户籍制度、农村人口迁移时的收益和机会成本等。目前，二元户籍制度已取消。但城镇化滞后使得城乡间的其它制度安排依然相当难以一致。生产要素在大区域范围内的市场组合碰到诸多法理和经济上的困难。从而城镇对产业的聚集效应难以得到充分发挥。为推动农村城镇化发展，发挥城镇对产业的集聚效应和提高区域经济竞争力，无锡市政府出台了三集中政策(工业向园区集中，土地向规模经营集中，居民向城镇居民区集中)。三集中政策实质内容之一就是实现农村城镇化。 农村城镇化涉及诸多的制度改革与创新，而其中最根本的是要求农村集体经济组织制度创新。这是因为农村城镇化并不仅仅是农民身份的简单转变或居住地的地理位置上的转移，它还包括生产、生活方式、管理体制等的现代化和生活质量的提高。农村集体经济组织的区域封闭性与农村城镇化所要求的资金、劳动力等生产要素自由流动等的经济活动开放性相矛盾；村集体经济组织的“干部经济”与城镇化所要求的管理科学民主相矛盾等等。如果在农村城镇化过程中，农村集体经济组织保持原有的组织结构，即使通过区划调整实现了城镇化，结果将是一片“都市里的村庄”或“乡村里的都市产业”的景象，在管理体制和运行机制上将仍保留着“城镇”和“农村”两种模式。 农村城镇化需要理顺农民与集体经济组织集体资产的关系，减少农民迁移的机会成本，防止农民在迁移过程中丧失其集体资产份额。否则，农民因担心失去集体资产及其收益而缺乏迁移的动力。 目前，在农村集体经济组织内，所有权归属模糊，农村集体经济组织缺乏自己的组织机构。乡镇政府、村委会拥有集体资产的控制权和剩余索取权。在这种产权结构下，农民离开集体经济组织，乡镇政府和村委会就剥夺了其集体成员资格及其在集体资产中的利益;居住社区合并时，集体资产可能被简单合并或被平调;当新成员进入集体经济组织时，即刻拥有集体成员资格和享有集体资产收益而影响到原集体成员的利益。因此，农民为维护自身利益而不愿迁移，也不愿非集体成员迁入到属于他们的集体社区，也影响到城中村和镇边村改造。农村集体经济组织这种管理和运行机制与城镇化的要求相矛盾。 为顺应城镇化发展和为了维护自身的利益，无锡市陈巷村村委会按照农民的意愿，在镇、区、市政府的支持下，率先将集体资产量化并以股权的形式分配给集体成员，同时成立了陈巷股份经济合作社，开创了一条加快农村根本制度改革，有力推进城镇化进程的有效道路。 陈巷村所在的黄巷镇、北塘区、无锡市政府根据陈巷村股份经济合作社的做法和经验，出台了相关政策，进一步推动辖区内各村进行产权制度变迁，成立村级股份经济合作社，以推动农村城镇化和促进农民收入增长。陈巷村产权制度变迁是以自发要求为主，因此是诱致性的变迁。无锡市其它村产权制度变迁则是以政府推动为主，因此是强制性变迁。 在农村股份经济合作社内部，产权归属清晰，股东拥有所有权、控制权和剩余索取权。股东权益不因迁移而被剥夺，集体资产不因居住社区合并而被简单合并或平调。将现代企业制度引入到股份经济合作社，符合城镇化对农村集体经济组织创新要求。因此，股份经济合作社有利于人口迁移和农村城镇化。 这里，本文需强调的是:集体资产股份制改造或无锡农村经济股份合作社建立的意义远不在于推动城镇化进程，它还对广大农村地区具有更多的普遍意义。农村股份经济合作社有利于农村收入的增长。村股份经济合作社产权归属清晰，确保了集体资产的保值增值，提高了资产的运行效率，有利于农民收入的增长。 农村股份经济合作社还促进了农村民主制度建设。村股份经济合作社的股东代表、董事及董事长是通过选举产生的;重大决策如投资、分配、预决算的审批、主要人事任命等都是通过股东大会或股东代表大会讨论通过。村委会的财务监督也由事后财务公开转变为事前预算约束。村股份经济合作社从制度上确立了村民的主人翁地位，提高了村民对集体的关心爱护程度。 无锡市农村股份合作制改造为我国农村改革指明了方向。农村股份经济合作制改造是继家庭联产承包制、乡镇集体企业股份合作制改造后，第三次农村重大产权制度变迁。农村股份合作社广泛的制度绩效解决了农村发展过程中面临的农民增收、村民自治、农村城镇化等多种问题。无锡市在推行股份经济合作制的具体做法上也为我国农村产权制度变迁起到示范作用，即先进行试点，然后在总结经？

　　【关键词】 农村城镇化； 集体所有制； 产权制度变迁； 股份经济合作社；

　　【Abstract】 Non-agriculture industries have developed very rapidly in Wuxi since 1979. The structure of labour force changed greatly, the proportion of non-agriculture labour force increased from 44 percent in 1978 to about 80 percent in 2003. the proportion of nonagri-industries production increased from 85.7 percent to 96 percent during the same time. Per capita GDP increased from $636 in 1978 to $5200 in 2003 just because the rising of the proportion of nonagri-labour force. But the proportion of non-agriculture population only increased from 19.3 percent to 41.3 percent during the same time. The ratio of NU, which reflects the level of urbanization, is about 2, which is 2 times of normal value 1. The level of urbanization of Wuxi is higher than that of national average, but it relatively lagged behind Wuxi’s economic development and the level of nonagriculture. The main effect factors on the lag of Wuxi’s urbanization level are the dual-resident system, the benefit and the opportunity cost of migration. The dual-resident system was abolished. It is difficult for the institutional arrangements between urban and rural be consistent for the lag of urbanization of Wuxi. The marketing arrangement of productive factors in large region meets a lot of obstacles from laws and economy. The aggregate effect of urban on industries cannot work well. In order to promote rural urbanization, improve the aggregate effect of urban on industries and enforce regional economic competition, Wuxi municipal issued "Three Centralizations" policy (A Centralization of Industries to Industries Zone, A Centralization of Land to Scale Farming, A Centralization of Resident to Residential Zone). One of the essences of the Three Centralization is to realize rural urbanization.Rural urbanization needs a lot of institutions innovation, and the basic of that is the rural collectives institutional innovation, since rural urbanization includes not only the simple change of status of villager and shift of geography position of residence, but also modernizations of production, life and management system, and improvement of life. Theregional closure of rural collectives conflicts with the economic opening of free shift of capital and labor, which rural urbanization needs; the "cadre economy" of rural collectives conflicts with democratic management which urbanization needs. If urbanization were realized by regionalism and rural collectives kept its original system, you will see the images of "villages in urban" and "modern industries" in rural area, and will find two models of "urban" and "rural" in management system and mechanism.Rural urbanization need clarify the relationship of collectives asset and its member, in order to decrease the opportunity cost of member’s migration and avoid the loss of member’s share of collectives asset when they migrate. Otherwise member has no enthusiasm for migration for worrying about loss of his share of collectives asset and income from it.Rural collectives property rights are vague and rural collectives have on their own organizations and framework in rural collectives now. TVGs(Town-Village Government) hold the control rights and residual claimant of collectives asset. When members leave their rural collectives, the TVGs deprive their membership and their benefit of collective assets. When villager residences combine, the collectives assets combine simply. When someone migrates to the village, he becomes collectives membership and share collectives benefit. In order to protect his share of collectives assets, he doesn’t leave his village and prevent newcomer from moving in their village. The management system and mechanism conflict with what urbanization need.In order to fit rural urbanization and protect their benefit, Chenxian village governors took the lead in transferring collectives into cooperatives by admeasure collectives assets in stock according villager’s desirability with the supports of town, county and municipal government. It opened up an efficient path for reforming rural basic system rapidly and pushing urban。

　　【Key words】 Rural Urbanization； Collective Ownership； Institutional Transition of Property Rights； Share-hold Cooperatives.；