这种状态的产生主要不是由于农民的谈判能力不足造成的,而是由于处于体制
外的农民对自身利益的判断出现偏差和政府忽视农民权益造成的。
本文以上海市浦东新区张江镇所推行的“镇保”政策为个案,通过对张江
镇农民土地承包使用权变更的实证考察,提出了几个重要观点:第一,中国地
方政府和基层政府在“低级政治”领域的作用,往往是基于地方层次上的利益
考虑,通过“变通”的方式来执行国家政策。第二,现实的制度安排过程没有较
好地尝试让农民参与政策制定的过程,农民无法从实际的政治过程中来获得提
升谈判能力的机会,同时,农民由于信息不对称而对由国家政策和法律赋予他
们的自身权益结构缺乏基本的判断,这导致了农民与地方和基层政府之间的不
对等博弈关系的产生。第三,由政府所主导、获得农民一定程度认同的“镇保”
政策及其相应的制度安排,其有效性存在内在的限度,具有很大的不确定性和
风险性。
关键词:社会保障 不对等博弈 政府安排的制度变迁
.
Abstract
The development of Chinese rural areas is the basic problem of modernization. The
whole reformation of China started with the rural reformation and institution
transition. Meantime, the property right played an important role. The facts from the
research in economics and sociology indicated that Chinese urbanization largely had
connection with the changes of land-contracted property while two games took place.
The first happened between the local government and the central government on the
land tenure when the local government was making local development strategy and
public policy. The second occurred among the local government, bottom government
and the peasants on the land tenure. According to the analysis of the two games, I got
a basic hypothesis that the game between the peasants and government was non-
equilibrium in the institution transition led by the governments at all levels.
Furthermore, the non-equilibrium was resulted from the impercipience of peasants
and the ignorance of government on the peasants benefits but not from their
deficiency in the capacity of negotiation.
Based on the example of “ZhenBao”policy carried out in ZhangJiang Town of
PuDong New Area of ShangHai, the article revealed several points from the research
on contracted land tenure of peasants in ZhangJiang Town. First, the local and bottom
governments usually carried out the state policy by alternatives on the view of local
benefit in the field of low-grade politics. Second, the present institution didn’t try to
let the peasants participate in the policy making, so they couldn’t get the opportunity
to develop their capacity of negotiation in the actual political process. At the same
time, the fact that peasants have no idea of their rights and benefits endowed by the