The Expansion of Pathways for Rural Collective Economic Development

The Third Plenary Session of the 20th Central Committee of the CPC adopted the “Resolution of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization,” which explicitly sets “narrowing the urban-rural gap and promoting common prosperity and development in both urban and rural areas” as the objective orientation of “improving the systems and mechanisms for integrated urban-rural development,” emphasizes “consolidating and improving the basic rural operation system,” and requires “developing new types of rural collective economies, establishing operational mechanisms with clear property rights and reasonable distribution, and granting farmers more complete property rights and interests.” Previously, in June 2024, the Tenth Session of the Standing Committee of the 14th National People’s Congress passed the “Law of the People’s Republic of China on Rural Collective Economic Organizations” (hereinafter referred to as the “Rural Collective Economic Organization Law”), which takes “consolidating and improving the basic rural operation system and the basic socialist economic system” as one of the purposes of enacting this law. This article, from the perspective of combining history and reality, theory and practice, and based on the decisions and deployments of the Third Plenary Session of the 20th Central Committee and the provisions of the Rural Collective Economic Organization Law, explores the pathways for further consolidating and improving the basic rural operation system, perfecting the system of rural collective economic organizations, and thereby promoting the development and expansion of the rural collective economy.

党的二十届三中全会通过了《中共中央关于进一步全面深化改革、推进中国式现代化的决定》，将“缩小城乡差别，促进城乡共同繁荣发展”明确为“完善城乡融合发展体制机制”的目标取向，强调“巩固和完善农村基本经营制度”，要求“发展新型农村集体经济，构建产权明晰、分配合理的运行机制，赋予农民更加充分的财产权益”。此前，2024年6月，第十四届全国人民代表大会常务委员会第十次会议通过的《中华人民共和国农村集体经济组织法》（以下简称《农村集体经济组织法》），把“巩固和完善农村基本经营制度和社会主义基本经济制度”作为制定该法的宗旨之一。本文从历史与现实、理论与实践结合视域，基于党的二十届三中全会决策部署和《农村集体经济组织法》的规定，对进一步巩固和完善农村基本经营制度、完善农村集体经济组织体系，进而促进农村集体经济发展壮大的实现路径进行探讨。

I. Coordinating the Development of Both the Collective and Household Levels Is an Inherent Requirement for Consolidating and Improving the Basic Rural Operation System

一、统筹集体和家庭两个层次的发展是巩固和完善农村基本经营制度的内在规定性

Article 8 of the Constitution of the People’s Republic of China stipulates: “Rural collective economic organizations implement a two-tier operation system that combines unified and separate management based on household contract management.” The two-tier operation system based on household contract management with the combination of unified and separate management is China’s basic rural operation system. Judging whether the basic rural operation system is consolidated and improved requires examining both whether household contract management based on collective land has developed and whether the collective economy has developed.

《中华人民共和国宪法》第八条规定：“农村集体经济组织实行家庭承包经营为基础、统分结合的双层经营体制。”家庭承包经营为基础、统分结合的双层经营体制是中国农村的基本经营制度。判断农村基本经营制度是否巩固和完善，既要考察基于集体土地的家庭承包经营是否发展，也要考察集体经济是否发展。

The protection of farmers’ land contract management rights and interests and the development of the collective economy promote each other. Consolidating and improving the basic rural operation system requires both perfecting the household contract management system to incentivize farmers and protect their rights and interests, and promoting the development of the collective economy. In April 2016, when General Secretary Xi Jinping presided over a forum on rural reform in Xiaogang Village, Fengyang County, Anhui Province, he emphasized that no matter how reforms are carried out, the collective ownership of rural land must not be undermined, and farmers’ interests must not be harmed. The development of the collective economy can provide support and guarantees for promoting the development of household contract management based on collective land and better protecting farmers’ rights and interests. Under the policy orientation of developing and expanding the rural collective economy, some rural collective economic organizations have seized the opportunities of industrialization, urbanization, and rural revitalization, and the problem of “empty-shell villages” [n] with no operational income has been resolved to a certain extent. However, the problem of weak collective economic development capacity has not been fundamentally solved, and instances of inadequate protection of farmers’ contract management rights still occur. Long-term practice shows that the development and expansion of the rural collective economy is conducive to promoting common prosperity, and the foundation for consolidating and improving the basic rural operation system can be made more solid.

农民土地承包经营权益的保障和集体经济的发展相互促进。巩固和完善农村基本经营制度，既要完善家庭承包经营制度激励农民和保障农民权益，也要促进集体经济发展。2016年4月，习近平总书记在安徽省凤阳县小岗村主持召开农村改革座谈会时强调，不管怎么改，不能把农村土地集体所有制改垮了，不能把农民利益损害了。集体经济的发展，可以为促进基于集体土地的家庭承包经营发展和更好保障农民的权益提供支撑和保障。在发展壮大农村集体经济的政策取向下，一些农村集体经济组织抓住工业化、城镇化、乡村振兴的机遇，无经营性收入的“空壳村”问题得到一定程度的解决，但集体经济发展能力弱的问题没有根本解决，农民承包经营权保障不充分现象时有发生。长期的实践表明，农村集体经济发展壮大，有利于促进共同富裕，巩固和完善农村基本经营制度的基础可以更加牢固。

(I) The Historical Process of Perfecting the Household Contract Management System and New Issues to Be Addressed

（一）完善家庭承包经营制度的历史进程和要破解的新题

The implementation of the household contract management system not only achieved its expected goals but also generated additional positive outcomes. The implementation of the household contract management system mobilized farmers’ enthusiasm for developing agriculture, liberated and developed rural social productive forces, and thus its initial goals were realized. This operation system, combined with other liberalizing policies, removed restrictions on farmers expanding into non-agricultural industries, contributing to better leveraging the advantages of the demographic dividend. The development of specialized farmer cooperatives and various forms of agricultural社会化服务 [n] created conditions for some farm households to develop into specialized, commercialized family farms applying advanced technology and equipment, exploring pathways for the organic integration of farm households with modern agriculture.

家庭承包经营制度的实行，不仅实现了预期目标，还衍生出更多的绩效。实行家庭承包经营制度调动了农民发展农业的积极性，解放和发展了农村社会生产力，其初始目标得以实现。这一经营制度与其他搞活政策共同作用，解除了农民向非农产业拓展的限制，为更好发挥人口红利优势作出了贡献；农民专业合作社的发展和多种形式的农业社会化服务的发展，为一些农户向应用先进科技和先进装备的专业化、商品化的家庭农场发展创造了条件，探索出农户与现代农业有机衔接的实现路径。

Since reform and opening up, China has continuously perfected the household contract management system in practice. In the early period of reform and opening up, the central government set the land contract period at a relatively long 15 years, later extended it to 30 years unchanged, and then to maintaining stable and long-term land contract relationships, giving farmers a long-term “reassurance pill.” [n] When farmers expanded into non-agricultural industries, the state clarified that land contract management rights could be voluntarily and legally transferred, institutionally guaranteeing farmers’ land contract rights and their ability to obtain corresponding income through the transfer of management rights, allowing farmers to confidently expand into non-agricultural sectors. Entering the New Era, the state promoted the reform of confirming rights to rural collective assets to households and the shareholding cooperative system reform to protect farmers’ rights and interests and eliminate their concerns. In the process of coordinating new-type industrialization, urbanization, and comprehensive rural revitalization to promote integrated urban-rural development, constant attention has been paid to preventing the fragmentation of contracted land, as well as issues such as the replacement of homesteads and the reform of market entry for rural collective operational construction land that might indirectly affect farmers’ land rights. The Third Plenary Session of the 20th Central Committee made deployments for deepening land system reform, proposing to “allow farmers to revitalize and utilize legally owned housing through methods such as leasing, equity contribution, and cooperation. Orderly advance the reform of market entry for rural collective operational construction land, and improve the mechanism for distributing land value-added income.” In this reform, it is necessary both to explore and design systems through pilot projects and to take preventive measures in actual operations to effectively protect farmers’ rights and interests.

改革开放以来，中国在实践中不断完善家庭承包经营制度。改革开放初期，中央将土地承包期明确为较长的15年，之后又先后延长为30年不变和保持土地承包关系稳定并长久不变，让农民吃了长效“定心丸”。在农民向非农产业拓展时，国家明确土地承包经营权可以自愿、依法流转，从制度上保障农民的土地承包权，以及通过经营权流转获得相应收益，使农民可以安心向非农产业拓展。进入新时代，国家推进农村集体资产确权到户和股份合作制改革，以保障农民权益和消除其顾虑。在统筹新型工业化、城镇化、乡村全面振兴促进城乡融合发展进程中，始终重视防止发生承包地细碎化问题，以及宅基地置换、农村集体经营性建设用地入市改革等可能发生变相影响农民土地权益等问题。党的二十届三中全会对深化土地制度改革作出部署，提出“允许农户合法拥有的住房通过出租、入股、合作等方式盘活利用。有序推进农村集体经营性建设用地入市改革，健全土地增值收益分配机制”。在这一改革中，既要通过试点探索作好制度设计，也要在实际操作中防微杜渐，切实把农民的权益保障好。

(II) The Differentiation of the Rural Collective Economy and the Need to Address the Enhancement of Rural Collective Economic Development Capacity

（二）农村集体经济的分化和需要在增强农村集体经济发展能力上破题

Since reform and opening up, the rural collective economy has shown a trend of differentiation. The collective economy of some villages has gradually developed and expanded, but the collective economy of many villages has remained weak and stagnant for a relatively long period. The initial goal of collective management was to make good use of collective assets, provide services to household management, and solve difficulties that small-scale farm households could not handle or found uneconomical to handle. This differs from the early 1950s when the promotion of agricultural production cooperatives aimed to solve the problem of farmers’ shortage of means of production. This change occurred because, after nearly three decades of development, the level of rural social productive forces had greatly improved, and the constraints faced in production had changed. With the implementation of liberalizing policies, some villages persisted in and improved the collective coordination and accumulation mechanisms, their collective economies gradually developed and expanded, driving farmers towards common prosperity, and the cohesion of collective economic organizations was strengthened.

改革开放以来，农村集体经济呈分化现象，一些村的集体经济逐步发展壮大，但仍有很多村的集体经济在较长时期内较弱，徘徊不前。集体经营初始目标是利用好集体资产，向家庭经营提供服务，解决小规模经营的农户办不了或办了不经济的困难，这不同于20世纪50年代初推进农业生产合作化是为了解决农户生产资料短缺的问题。这一变化是因为经过近三十年发展，农村社会生产力水平有了大幅提升，生产中面临的约束因素发生了变化。随着搞活政策的实行，一些村坚持和完善集体统筹和积累机制，集体经济逐步发展壮大，带动农民共同致富，集体经济组织的凝聚力增强。

To consolidate and improve the basic rural operation system, breakthroughs are needed in enhancing the development capacity of the rural collective economy. In March 2013, General Secretary Xi Jinping pointed out that reform and opening up began in rural areas, and the household contract responsibility system was the herald of reform and opening up. In the early period of reform and opening up, central documents proposed establishing a household contract responsibility system combining unified and separate management. However, the result in practice was that the enthusiasm for “separate management” was fully demonstrated, but how “unified management” could adapt to the market economy and economies of scale was never well resolved. This phenomenon was caused by multiple factors, including insufficient attention to developing the collective economy, a lack of management talent and weak management capacity in rural collective economic organizations over a period, inadequate incentives for management personnel, the small contribution of collective economic income to directly increasing household income, and, compared with specialized farmer cooperatives, gaps in support policies, specialized legal system guarantees, and legal person status. The newly formulated Rural Collective Economic Organization Law will improve support policies and legal guarantees for the rural collective economy, and the development of the rural collective economy will enter a new phase. Promoting the development of the rural collective economy requires following objective laws; it cannot be blindly driven by administrative means, nor can inaction be allowed. The business of collective management must also be transformed, expanding from providing production services to enhancing market development capabilities, increasing the value of rural resources, raising the level of industrial quality, extending the industrial chain to promote the integrated development of primary, secondary, and tertiary industries, and enhancing brand value.

巩固和完善农村基本经营制度，需要在增强农村集体经济发展能力上跟进突破。2013年3月，习近平总书记指出，改革开放从农村破题，大包干是改革开放的先声。改革开放初期，中央文件提出要建立统分结合的家庭联产承包责任制，但实践的结果是，“分”的积极性充分体现了，但“统”怎么适应市场经济、规模经济，始终没有得到很好的解决。这一现象的发生是多种因素造成的，除了对发展集体经济重视不够外，还包括一段时期内农村集体经济组织经营人才缺失、经营能力弱，对经营管理人才激励不充分，集体经济收入对直接增加农户收入的贡献小，加之与农民专业合作社相比，在支持政策、专门法律制度保障、法人地位等存在一定差距。新近制定的《农村集体经济组织法》将改善农村集体经济支持政策和法律保障，农村集体经济发展将进入新的阶段。促进农村集体经济的发展，要遵循规律，不能盲目以行政方式推动，但也不能不作为，集体经营业务也要转换，在提供生产服务的同时，向提升市场开拓能力、提升农村资源价值、提升产业优质化水平、延长产业链促使一二三产业融合发展、提升品牌价值等方面拓展。

II. Grasping the Direction and Principles for Reforming and Perfecting Rural Collective Economic Organizations from the Experience of Long-Term Evolution and Development

二、从长时段演进发展经验中把握农村集体经济组织改革完善的方向和原则

China’s rural collective economic organizations originated from elementary agricultural producers’ cooperatives and advanced agricultural producers’ cooperatives, undergoing the merger of small cooperatives into large ones, the movement to establish people’s communes, the people’s commune system under the “three-level ownership with the production team as the base” [1]1 The “three types of rights” (三权) in land refer to the separation of ownership, contract rights, and management rights, a reform aimed at clarifying property rights and facilitating land transfer. system, the two-tier management system, the confirmation of collective asset rights to households, and the reform of the joint-stock cooperative system. Throughout this process, what has been consistently upheld is collective land ownership and the path toward common prosperity based on it. What has changed is the exploration, starting from China’s actual conditions, of effective forms of public ownership, and the exploration, based on the level of economic and social development, the problems faced, and the goals to be achieved at different stages of development, of concrete pathways for rural collective economic development and common prosperity. Article 4 of the Rural Collective Economic Organization Law legally establishes “adhering to socialist collective ownership and safeguarding the legitimate rights and interests of the collective and its members” as one of the principles that rural collective economic organizations should follow. Through long-term practical exploration and theoretical innovation and development, a pathway has been explored and formed that safeguards the legitimate rights and interests of both the collective and its members, thereby promoting mutual promotion and common development of the collective economy and household contractual management.

中国农村集体经济组织起于初级农业生产合作社、高级农业生产合作社，经历了小社并大社、人民公社化运动、“三级所有，队为基础”体制的人民公社、双层经营体制、集体资产确权到户和股份合作制改革。其中，始终坚持的是土地集体所有制，以及以此为基础走共同富裕道路。变的是从中国实际出发探索公有制有效实现形式，从不同发展阶段的经济社会发展水平、面临的问题、要实现的目标探索农村集体经济发展、共同富裕的具体实现路径。《农村集体经济组织法》第四条从法律上将“坚持社会主义集体所有制，维护集体及其成员的合法权益”明确为农村集体经济组织应遵循的原则之一。经过长期实践探索和理论创新发展，探索形成维护集体和成员两个方面的合法权益，进而促进集体经济和家庭承包经营相互促进、共同发展的路径。

(I) The reform and improvement of rural collective economic organizations must always adhere to the unchanged nature of rural collective land ownership

（一）农村集体经济组织的改革完善要始终坚持农村土地集体所有制不变

Throughout all the adjustments and reforms experienced by rural collective economic organizations, one bottom line has been adherence to the unchanged nature of rural collective land ownership. The reform of implementing the household contractual management system in the early period of reform and opening up involved transferring the collective’s land to households for contractual management; it was not the privatization of collective land, nor was it a “deconstruction” of the collective economy. This is reflected in two aspects: On the one hand, the implementation of the household contractual management system reform added the level of household contractual management on the basis of the collective economy’s sole practice of unified collective management, and also clearly stipulated that the collective must provide unified services for household contractual management. This formed a two-tier management system based on household contractual management and combining unified and separate management, which the Party Central Committee clearly designated as the basic rural management system. However, for a period, collective management in agriculture was not fully carried out in practice. This was not only because, in the early period of implementing household contractual management, insufficient attention was paid in practice to developing collective management, but also because, with the continuous advancement of market-oriented reforms, the rural economy was activated, and various types of agricultural socialized service organizations, such as companies and specialized cooperative economic organizations, emerged to fill the gap left by the collective in providing services to households.

农村集体经济组织经历的所有调整、改革，一条底线是坚持农村土地集体所有制不变。改革开放初期实行家庭承包经营制度的改革，是将农村集体的土地交由农户承包经营，不是将集体土地私有化，也不是对集体经济实行“解构”。这体现在两个方面：一方面，实行家庭承包经营制度改革，是在集体经济组织单一实行集体统一经营的基础上，增加家庭承包经营这个层次，也明确规定了集体要为家庭承包经营提供统一服务，这就形成了家庭承包为基础、统分结合的双层经营体制，党中央将这一体制明确为农村基本经营制度。但一段时期内，农业方面的集体经营在实践中没有充分开展，这除了实行家庭承包经营初期实践中对开展集体经营不够重视外，还因为随着市场取向改革的不断推进，激活了农村经济，生长出的公司、专业合作经济组织等多种类型的农业社会化服务组织填补了集体向农户提供服务的空缺。

On the other hand, the distribution system for household contractual management was “pay enough to the state, leave enough for the collective, and keep the rest for oneself.” This reform was an improvement of the distribution relationship among the state, the collective, and the individual. The contract-based distribution system of household contractual management, on the one hand, made the relationship between the collective and household contractual management clearer; on the other hand, because it promoted increased agricultural output and farmers’ income, it gradually eliminated the phenomenon under the pre-reform-and-opening-up system of sole unified collective management, where some production teams relied on resold grain for food, relied on relief funds for money, and relied on loans for production. Farmers were able to pay the state’s agricultural tax, township overall plans, and village retained funds in full, enabling the state and the collective to obtain more secure and greater benefits. Some researchers have failed to notice that the contract-based distribution system of household contractual management improved the distribution relationship among the state, the collective, and the individual, and incentivized farmers to achieve agricultural output increases, thereby making the benefits for the state and the collective more secure. Consequently, they believe that household contractual management has impacted the collective economy. At the same time, there was another important policy factor: starting from the goal of reducing the burden on farmers, the state promoted the reform of rural taxes and fees and implemented a policy of extending public finance to cover rural areas. The income obtained from household contractual management was no longer required to pay agricultural tax, township overall plans, or village retained funds; that is, the collective no longer participated in the distribution of household contractual management income through township overall plans and village retained funds. Moreover, the state also provided farmers with various direct subsidies. This was not a dissolution of the distribution relationship between the collective and contractual management, but rather, after entering a certain stage of development, the state implemented a policy of industry nurturing agriculture, which is a component of the state’s policy of strengthening, benefiting, and enriching agriculture. In short, the weakening of the collective economy caused by historical conditions cannot be attributed to the reform of implementing household contractual management, nor should one lose confidence in the development of the collective economy because of it.

另一方面，对家庭承包经营实行“交够国家的，留足集体的，剩下全是自己的”分配制度，这一改革是对国家、集体、个人分配关系的完善。家庭承包经营的包干分配制度一方面使集体与家庭承包经营的关系更明确，另一方面也因为促进了农业增产和农民增收，逐步消除了改革开放前单一实行集体统一经营体制下一些生产队吃粮靠返销、用钱靠救济、生产靠贷款的现象，农民能够交足国家的农业税、乡统筹、村提留，使国家和集体获得了更有保障和更多的收益。有的研究者没有注意到家庭承包经营的包干分配制度改善国家、集体、个人分配关系，以及激励农民实现农业增产，进而使国家和集体收益更有保障这一点，因而认为家庭承包经营冲击了集体经济。同时，还有一个重要政策因素，即从减轻农民负担出发，国家推进农村税费改革和实行公共财政覆盖农村政策，家庭承包经营所获收益不上缴农业税、乡统筹和村提留，即集体不以乡统筹和村提留方式参与家庭承包经营分配。不仅如此，国家还给农民多种直接补贴，这并不是集体与承包经营之间分配关系的解除，而是在进入到一定发展阶段后，国家实行工业反哺农业政策，是国家强农惠农富农政策的组成部分。简言之，不能将历史条件所致的集体经济弱化归于实行家庭承经营这一改革，也不能因此对集体经济的发展失去信心。

Adhering to rural collective land ownership is something that can be innovated and reformed and is full of vitality. The implementation of the household contractual management reform in the early period of reform and opening up and the promotion of the reform separating collective land ownership, contractual rights, and management rights (hereinafter referred to as the “separation of three rights”) in the New Era have fully demonstrated this.

坚持农村土地集体所有制，是可以改革创新和充满生机活力的。改革开放初期实行家庭承包经营改革和进入新时代推进集体土地所有权、承包权、经营权分置改革（以下简称“三权分置”），对此给予了充分证明。

Adhering to rural collective land ownership and promoting household contractual management of land realized the separation of rural collective land ownership from household contractual management rights. From the establishment of rural collective economic organizations until reform and opening up, they implemented collective ownership, unified management, and collective labor. Even when the state advocated the implementation of responsibility systems such as contracting work to work groups, it was still collective ownership, unified management, and collective labor. The separation of rural collective land ownership from contractual management rights broke through the traditional understanding that rural collective land could only be managed by the collective. This institutional innovation thereby formed a system that both adhered to rural collective land ownership and, on this basis, created a fully incentivized household management system, injecting vitality into the rural economy and becoming the cornerstone of stable rural development and harmonious progress.

坚持农村土地集体所有制推进土地家庭承包经营，实现了农村土地集体所有权与家庭承包经营权分离。农村集体经济组织自建立起到改革开放前，实行集体所有、统一经营、集体劳动，即便国家倡导实行包工到作业组等责任制，也是集体所有、统一经营、集体劳动。农村集体土地的所有权与承包经营权的分离，突破了农村集体土地只能由集体经营的传统认识。这一制度创新，由此形成既坚持农村土地集体所有制，又形成以此为基础的激励充分的农户家庭经营，为农村经济注入了活力，成为农村稳步发展、和谐进步的基石。

Adhering to rural collective land ownership and promoting the “separation of three rights” reform, on the basis of realizing the separation of rural collective land ownership from household contractual management rights, further realized the separation of contractual rights from management rights. This institutional innovation arose because some farmers, engaged in secondary and tertiary industries, lacked the energy to cultivate their contracted land, while other farmers were willing to specialize in agriculture and expand their scale of cultivation, thus having a demand to transfer and manage the contracted land of other farmers. The state responded to this development demand and confirmed it through policies and institutions. With the implementation of the “separation of three rights,” farmers could transfer their contracted land to others for management, or they could invest their management rights as shares in cooperatives or companies. The grassroots exploration of transforming resources into equity, funds into shares, and farmers into shareholders (hereinafter referred to as the “three transformations” reform) [2]2 “Three-level ownership with the production team as the base” (三级所有，队为基础) was the basic structure of the rural people’s commune system, where ownership was shared by the commune, the production brigade, and the production team, with the production team as the basic accounting and production unit. is an effective form of realization explored after the “separation of three rights” reform that can safeguard farmers’ rights and interests and promote collective economic development, becoming one of the pathways for achieving high-quality development of agriculture and rural areas and the modernization of agriculture and rural areas.

坚持农村土地集体所有制推进“三权分置”改革，在实行农村土地集体所有权与家庭承包经营权分离的基础上，又实现了承包权与经营权分离。这一制度创新缘于有的农民从事二三产业没有精力耕种承包地，有的农民又愿意专营农业、扩大耕作规模，有将其他农民的承包地流转过来经营的需求。国家顺应这一发展要求，从政策和制度上加以确认。“三权分置”的实施，农民可以将承包的土地通过流转给他人经营，也可将其经营权入股合作社或公司等。基层探索的资源变股权、资金变股金、农民变股东（简称“三变”改革），则是“三权分置”改革后探索的能够保障农民权益和促进集体经济发展的一种有效实现形式，成为促进农业农村高质量发展和农业农村现代化的实现路径之一。

(II) The reform and improvement of rural collective economic organizations must be conducive to incentivizing farmers and safeguarding farmers’ rights and interests

（二）农村集体经济组织的改革完善要有利于激励农民和保障农民权益

Reforming and improving rural collective economic organizations around incentivizing farmers and safeguarding farmers’ rights and interests has been consistent since the establishment of rural collective economic organizations, only with different forms of realization in different periods.

围绕激励农民和保障农民权益改革完善农村集体经济组织，是从农村集体经济组织建立起一以贯之的，只是在不同时期的实现形式不同。

The production and operation of rural collective economic organizations differ from the previous self-sufficient small-scale peasant economy. How to promote the development of the rural collective economy, how to manage the affairs of the rural collective economy well, and how to handle the relationships between the collective and its members, and among members themselves, are all new issues that require a process of exploration. Among these, the most difficult is how to handle the distribution of income between the collective and its members, and the distribution according to work among members, in order to form an incentive mechanism.

农村集体经济组织的生产经营不同于之前自给自足的小农经济。如何促进农村集体经济发展，如何管理好农村集体经济事务，如何处理好集体与成员、成员与成员的关系，都是新的课题，需要有一个探索的过程。其中，最难的是如何处理集体与成员之间的收益分配、成员与成员的按劳分配，以形成激励机制的问题。

Since their establishment, rural collective economic organizations have explored the construction of incentive mechanisms through a system of production responsibility. On November 9, 1955, the 24th Session of the Standing Committee of the National People’s Congress adopted the *Model Charter for Agricultural Producers’ Cooperatives*, which clarified the solution. Article 43 stipulated: “In order to carry out organized collective labor, agricultural producers’ cooperatives must, according to the needs of production and the conditions of their members, implement a division of labor, establish a certain labor organization, and gradually introduce a system of responsibility in production.” Articles 55 and 56 further stipulated that agricultural producers’ cooperatives should promote a contract-work system, transitioning as far as possible from contract-work for cultivation segments and seasons (small-scale contract-work) to year-round contract-work (large-scale contract-work), and should reward or penalize based on completion, thereby establishing an incentive mechanism. In September 1957, the Central Committee of the CPC, in its *Directive on Doing a Good Job of Production Management in Agricultural Producers’ Cooperatives*, pointed out that contracting work to groups and contracting odd field tasks to households was an effective method for establishing a production responsibility system. It was necessary to earnestly establish collective and individual production responsibility systems and universally promote the “three-contract system” of contracting work, contracting output, and contracting finances, with bonuses for exceeding output targets and deductions for shortfalls. In practice, some agricultural producers’ cooperatives broke through these regulations and implemented work-group contracting of work and output; some work groups even quietly implemented household-level contracting of work and output. However, because contracting output to households was at that time regarded as individual farming on the capitalist road, it was quickly banned.

农村集体经济组织自建立起就探索实行以生产责任制的方式构建激励机制。1955年11月9日，全国人大常委会第二十四次会议通过《农业生产合作社示范章程》，明确了解决办法，第四十三条规定：“农业生产合作社为了进行有组织的共同劳动，必须按照生产的需要和社员的条件，实行劳动分工，并且建立一定的劳动组织，逐步地实行生产中的责任制。”第五十五条和五十六条还规定，农业生产合作社应该推行包工制，尽可能从实行耕作段落的和季节的包工制（小包工）逐步过渡到常年包工制（大包工），并根据完成情况予以奖罚，以此建立激励机制。1957年9月，中共中央在《关于做好农业生产合作社生产管理工作的指示》中指出，工包到组、田间零活包到户是建立生产责任制的一种有效办法，必须切实建立集体的和个人的生产责任制，普遍推行包工、包产、包财务的“三包制度”，对超产给予提成奖励，对减产扣分。在实践中，一些农业生产合作社突破上述规定，实行作业组包工包产；有的作业组甚至悄悄实行社员户包工包产，但由于当时包产到户被视为走资本主义道路的单干，很快就被取缔。

The Third Plenary Session of the 11th Central Committee of the CPC agreed to distribute the *Decision of the Central Committee of the CPC on Several Issues Concerning Accelerating Agricultural Development (Draft)* to provinces, municipalities, and autonomous regions for discussion and trial implementation. In summarizing and earnestly drawing lessons from the experience and lessons of China’s agricultural development, it pointed out that the primary starting point for determining agricultural and rural economic policies was to fully leverage the superiority of the socialist system and fully mobilize the initiative of the 800 million peasants across the country. Guided by the spirit of the plenary session regarding the mobilization of peasant initiative, the household contract responsibility system, created by peasants, was promoted nationwide. It handled the distribution relationship among the state, the collective, and peasant households through the formula: “pay enough to the state, retain sufficient for the collective, and keep the rest for oneself.” This resolved the problem of egalitarianism to a certain extent in distribution among members within collective labor under the production team as the basic accounting unit, enabling peasants to obtain returns corresponding to their input and increasing their initiative to gain marginal benefits. Moreover, the combined effect of the household contract responsibility system and other policies to invigorate the economy enabled peasant households, using the contracted management of land as a fulcrum, to expand into relatively independent business entities. This derivative reform also incentivized peasants and revitalized the rural economy.

党的十一届三中全会同意将《中共中央关于加快农业发展若干问题的决定（草案）》发到各省、市、自治区讨论和试行，其中在总结和认真吸取中国农业发展的经验教训后指出，确定农业政策和农村经济政策的首要出发点，是充分发挥社会主义制度的优越性，充分发挥全国8亿农民的积极性。在全会关于发挥农民积极性的精神指引下，全国推广农民创造的家庭承包经营，以“交够国家的，留足集体的，剩下全是自己的”的方式处理国家、集体、农户之间的分配关系，解决了以生产队为基本核算单位、集体劳动中成员与成员之间在分配上一定程度存在的平均主义问题，使农民的投入能够得到与之对应的收益回报，提高了农民获得边际效益的积极性。不仅如此，家庭承包经营与其他搞活政策的实施共同作用，使农户以土地承包经营为支点，拓展成为相对独立的经营主体等，这一衍生改革也激励了农民，还激活了农村经济。

Entering the New Era, the implementation of the reform of separating the three types of rights [n1] in land, the reform to confirm collective asset rights to households, and the reform of the joint-stock cooperative system have further safeguarded the rights and interests of peasants, making their property income more secure.

进入新时代，实行“三权分置”改革、推进集体资产确权到户和股份合作制改革，进一步保障了农民的权益，使农民财产性收益更有保障。

(3) The reform and improvement of rural collective economic organizations must be conducive to promoting the development of the rural collective economy.

（三）农村集体经济组织的改革完善要有利于促进农村集体经济发展

Changes in the organizational forms of the rural collective economy in New China are related to the stage of agricultural and rural development in each period, the difficulties faced, the goals to be achieved, and changes in the theoretical understanding of agricultural and rural development.

新中国农村集体经济组织形式的变化，与各时期农业农村所处的发展阶段、面临的困难和要实现的目标，以及农业农村发展理论认识变化相关。

Rural collective economic organizations modeled on agricultural producers’ cooperatives were dedicated to solving the problem of peasant households’ insufficient means of agricultural production. Subsequently, around comprehensive rural development, rural people’s communes were established and the system of “three-level ownership with the production team as the base” [n2] was implemented. Under the long-term policy of agriculture supporting industry, the advantages of the collective mechanism for overall planning and accumulation promoted, to a certain extent, the development of agriculture and commune- and brigade-run enterprises. After reform and opening up, the development of collective township and village enterprises strengthened the strength of the collective economy, and the collective economy remained an important force in the comprehensive development of the primary, secondary, and tertiary industries in rural areas. Entering the New Era, in the face of the withdrawal of collective property rights after the property rights reform of township and village enterprises and the predicament of the collective economy after the rural tax and fee reform abolished township overall planning and village retention [n3], the state adopted measures to promote the development of the collective economy. At the same time, it promoted the appreciation of rural resources, enhanced the agglomeration capacity of villages, empowered the integrated development of rural primary, secondary, and tertiary industries, the integrated development of urban and rural areas, and the common prosperity and development of urban and rural areas, moving towards the development of livable, workable, and beautiful villages.

以农业生产合作社为模式的农村集体经济组织致力于解决农户农业生产资料不足的问题，此后，围绕农村综合发展建立农村人民公社和实行“三级所有，队为基础”体制。在长期实行农业养育工业政策的情况下，集体统筹和积累机制优势一定程度促进了农业和社队企业的发展。改革开放后，集体乡镇企业的发展增强了集体经济的实力，集体经济仍然是农村一二三产业全面发展的重要力量。进入新时代，面对乡镇企业产权改革后集体产权的退出及农村税费改革取消乡统筹和村提留后集体经济的困境，国家采取措施促进集体经济发展。同时，促进了乡村资源增值，增强了乡村聚集力，为农村一二三产业融合发展、城乡融合发展、城乡共同繁荣发展赋能，朝着宜居宜业和美乡村的方向发展。

3. Adhere to a Systems Perspective to Improve the Rural Collective Economic Organization System

三、坚持系统观念完善农村集体经济组织体系

Rural collective economic organizations are one of many types of economic organizations in China’s rural areas. Understanding rural collective economic organizations often involves static or isolated thinking, considering only how a single rural collective economic organization can develop on its own. This is inconsistent with history and also fails to pay attention to practical innovations in some localities. To develop the rural collective economy, it is necessary to adhere to a systems perspective to expand the pathways for rural collective economic development, explore and improve the collective economic organization system, not only to substantiate the three-level collective economic organizations but also to promote the inclusive development of the rural collective economy with other organizations, correctly grasp the relationship between the “hitchhiking” development and the “shipbuilding” development of the rural collective economy, and build leading organizations capable of driving the development of the three-level collective economy.

农村集体经济组织是中国农村多种类型经济组织之一。对于农村集体经济组织的认识，存在静态或孤立思维，只考虑某个农村集体经济组织如何单独发展，这既不符合历史，也缺乏对一些地方实践创新的关注。发展农村集体经济，需要坚持系统观念拓展农村集体经济发展路径，探索完善集体经济组织体系，不仅要做实三级集体经济组织，还要促进农村集体经济与其他组织包容发展，正确把握农村集体经济“搭船”发展与“造船”发展的关系，构建能够带动三级集体经济发展的龙头组织。

(1) Legally Promote the Substantiation of the Three-Level Collective Economic Organizations

（一）依法促进三级集体经济组织的实化

To develop and strengthen the rural collective economy, it is necessary to face the reality that there is a three-level collective economy in rural areas, improve support policies for the collective economy, and legally substantiate the three-level collective economic organizations.

发展壮大农村集体经济，要正视农村有三级集体经济的现实，完善对集体经济的扶持政策，依法把三级集体经济组织做实。

The *Rural Collective Economic Organization Law* clearly stipulates that rural collective economic organizations “include township-level rural collective economic organizations, village-level rural collective economic organizations, and group-level rural collective economic organizations.” This legal provision respects the history of the development of collective economic organizations and clarifies ambiguous understandings. The three-level collective economic organizations at the township, village, and group levels are an evolution from the “three-level ownership with the production team as the base” system of the people’s communes since reform and opening up. In the early period of reform and opening up, after the separation of government and commune functions in the people’s communes, the commune-level economic organizations were transformed into township-level collective economic organizations, with varying names across localities, such as township economic cooperatives, or agricultural-industrial-commercial associations or companies; production brigades were transformed into village-level collective economic organizations, some called village community economic cooperatives; the production teams, which were the basic accounting units, were transformed into group-level collective economic organizations. After the rural tax and fee reform, grassroots revenue sources decreased. In this context, to save rural administrative costs, mergers of townships and towns, and mergers of administrative villages were implemented, and boundaries changed: the boundaries of township-level and village-level collective economic organizations changed with the mergers of townships, towns, and administrative villages, with the regional scope expanding; village-level finances became independent but generally adopted the system of village finances managed by the township; group-level boundaries were relatively stable, because although the village is the party that contracts out land, the group serves as the basic unit (reflected in the general practice of not allocating contracted land across groups). In practice, group-level collective economic organizations became virtualized, generally only retaining a group leader while finances were managed uniformly by the village, with a minority of groups maintaining independent operations; some township-level collective economic organizations faded away; relatively speaking, although village-level collective economic organizations were once nameless, the village collective economy has always existed in practice.

《农村集体经济组织法》明确规定，农村集体经济组织“包括乡镇级农村集体经济组织、村级农村集体经济组织、组级农村集体经济组织”。这一法律规定，尊重了集体经济组织的发展历史，澄清了模糊认识。乡镇、村、组三级集体经济组织，是改革开放以来在人民公社“三级所有，队为基础”体制基础上的演进。改革开放初期，人民公社政社分设后，公社级经济组织改为乡镇级集体经济组织，各地称谓不同，有的称乡镇经济合作社，有的称农工商联合社或公司等；生产大队改为村级集体经济组织，有的称村社区经济合作社；基本核算单位的生产队改为组级集体经济组织。农村税费改革后，基层收入来源减少，在这种情况下，为节省农村行政成本，实行乡镇与乡镇合并、行政村与行政村合并，边界发生变化：乡镇级、村级集体经济组织的边界随着乡镇合并、行政村合并而变化，区域范围扩大，村级财务独立但一般实行村财乡镇管；组级边界相对稳定，这是因为虽然村是土地承包的发包方，但以组为基本单元（体现在一般不跨组分配承包地）。在实践中，组级集体经济组织虚化，一般只保留组长和财务由村统一管理，少数组保持独立经营；乡镇级集体经济组织有的消退；相对而言，村级集体经济组织尽管一度无名，但村集体经济在实际上始终存在。

The *Rural Collective Economic Organization Law* legally and clearly stipulates that rural collective economic organizations exist at the township, village, and group levels. This has important practical significance, and the development of the three-level collective economy should be legally promoted.

《农村集体经济组织法》从法律上明确规定农村集体经济组织有乡镇级、村级、组级，有重要的实践意义，应依法促进三级集体经济发展。

First, the rural collective economic organization should be treated as an important organizational vehicle for state support of the “three rural” [n4] cause, and support methods should be innovated, with efforts focused on enhancing the development capacity of the rural collective economy. State support for rural collective economic organizations has been clearly established as a legal system. Article 9 of the *Rural Collective Economic Organization Law* stipulates: “The state promotes the development of rural collective economic organizations and strengthens the new-type rural collective economy through support measures such as fiscal, tax, financial, land, talent, and industrial policies.” Moreover, it also provides that “the state encourages and supports organizations and individuals, including state organs, enterprises, public institutions, and social groups, to provide assistance and services to rural collective economic organizations.” To pool the strength of relevant organizations and individuals in developing rural collective economic organizations, the law also specifies incentive measures, namely: “organizations and individuals that make outstanding contributions to the development of the rural collective economic organization cause shall be commended and rewarded in accordance with state regulations.” For the various types of support, assistance, and services provided by the state, state organs, enterprises, public institutions, social groups, and individuals, the focus should be on breaking through bottleneck factors, and innovation and improvement should be oriented toward forming a joint force of support from all sides. In implementing state industrial support policies, on the one hand, collective economic organizations should be included within the scope of support. Collective economic development projects should be organized and implemented to remedy the weakness of collective economic development capacity; on the other hand, in coordination with industrial support, a support plan for brokers of collective economic organizations should be implemented to solve the long-standing bottleneck problem of weak collective management capacity.

一是把农村集体经济组织作为国家支持“三农”事业发展的重要组织载体，并创新支持方式，在提升农村集体经济发展能力上着力。国家对农村集体经济组织予以扶持已明确为法律制度。《农村集体经济组织法》第九条规定：“国家通过财政、税收、金融、土地、人才以及产业政策等扶持措施，促进农村集体经济组织发展，壮大新型农村集体经济。”不仅如此，还规定“国家鼓励和支持机关、企事业单位、社会团体等组织和个人为农村集体经济组织提供帮助和服务”。为了聚集有关组织和个人发展农村集体经济组织的力量，该法还明确了激励措施，即“对发展农村集体经济组织事业做出突出贡献的组织和个人，按照国家规定给予表彰和奖励。”对于国家及机关、企事业单位、社会团体和个人提供的各类支持、帮助和服务，要以突破瓶颈因素为重点和形成各方支持合力为取向进行创新完善。在实施国家产业扶持政策中，一方面，将集体经济组织纳入支持范围。组织实施集体经济发展项目，以补集体经济发展能力弱的短板；另一方面，与产业扶持配套，实施集体经济组织经纪人支持计划，解决长期存在的集体经营能力弱的瓶颈制约问题。

Second, collective economic organizations should not be limited to the village level; attention should be paid to the development of township-level and group-level collective economic organizations, and efforts should be made to substantiate collective economic organizations at all levels, avoiding their virtual erosion in disguised form. Among these, the group-level collective economic organization is the most easily overlooked. The basis for the existence of group-level collective economic organizations lies not only in the fact that land contracting takes the group as the unit, but also in that some groups possess independent operational assets. Moreover, based on the author’s interviews with farmers and the experience of grassroots cooperative organizations at home and abroad, group-level collective economic organizations have fewer members, making opinion expression more direct and fuller, making it easier to realize democratic management to advance common undertakings, and making it easier to generate momentum for promoting collective economic development based on shared interests.

二是不能把集体经济组织仅限于村级，要重视乡镇级和组级集体经济组织的发展，注重把各级集体经济组织做实，不能将其变相虚化。其中，最容易被忽视的是组级集体经济组织。组级集体经济组织存在的基础不仅体现在土地承包以组为单元，而且一些组有独立的经营性资产。不仅如此，根据笔者对农民的访谈，以及国内外基层合作组织的经验，组级集体经济组织成员少，意见表达更直接更充分，更容易实现民主办社推进共同的事业，更容易形成基于共同利益推进集体经济发展的动力。

Third, when townships or administrative villages are merged, the independence of the original-level collective economic organizations must be guaranteed. The collective assets of the original township or administrative village should not be simply attributed to the merged township or administrative village through administrative means. If integration is necessary, it should be carried out in accordance with asset restructuring methods, so as to ensure that the rights and interests of the original regional collective economic organizations and their members are not harmed.

三是乡镇合并、行政村合并时，要保障原有层级集体经济组织的独立，不能以行政方式简单将原乡镇、行政村的集体资产归为合并后的乡镇、行政村，如果要整合也应当按资产重组方式进行，以保障原区域集体经济组织及其成员的权益不受损失。

(2) Promoting the Inclusive Development of Rural Collective Economic Organizations and Other Economic Organizations

（二）促进农村集体经济组织与其他经济组织包容发展

Based on the regional nature of rural collective economic organizations, the relationship between rural collective economic organizations and other economic organizations should be properly handled. The *Rural Collective Economic Organization Law* stipulates: “A rural collective economic organization refers to a regional economic organization that, based on collective ownership of land, exercises ownership on behalf of its member collective in accordance with the law, and implements the two-tier management system combining unified and separate operations based on the household contract management system.” The law defines collective economic organizations as regional economic organizations, which is a characteristic distinguishing them from other economic organizations. Therefore, the development of the rural collective economy should be promoted based on the regional nature of rural collective economic organizations. First, regional development should be planned as a whole, using planning to guide various development projects to make coordinated use of collective assets and resources within the region, including the coordinated use of cultural and natural resources within the region to promote the construction of livable, workable, and beautiful villages, solidly advance the revitalization of rural industries, talent, culture, ecology, and organizations, and promote the development of the rural collective economy. Second, based on regionality, and especially the basic consistency between regional members and members of collective economic organizations, various relationships in development should be properly handled. Among these, an important relationship is that when Party branches lead the establishment of specialized cooperatives, this method should be used to promote collective economic development, while also noting the issue of the incomplete overlap between members of specialized cooperatives and members of collective economic organizations, clarifying the property rights and their income relationships between collective economic organizations and specialized cooperatives, and ensuring the property rights and income of collective economic organizations in specialized cooperatives. This can both safeguard the rights and interests of members of collective economic organizations and promote the development of the collective economy through Party branch-led cooperatives.

基于农村集体经济组织的区域性，处理好农村集体经济组织与其他经济组织的关系。《农村集体经济组织法》规定，“农村集体经济组织，是指以土地集体所有为基础，依法代表成员集体行使所有权，实行家庭承包经营为基础、统分结合双层经营体制的区域性经济组织”。该法将集体经济组织界定为区域性经济组织，这是有别于其他经济组织的特色。由此，要基于农村集体经济组织的区域性促进农村集体经济的发展。一是要统筹规划区域发展，以规划引导各发展项目统筹利用好集体资产和区域内的资源，也包括统筹利用好区域内的文化和自然资源推进宜居宜业和美乡村建设，扎实推动乡村产业、人才、文化、生态、组织振兴，促进农村集体经济发展。二是要基于区域性，特别是区域成员与集体经济组织成员的基本一致性，处理好发展中的诸方面关系。其中，一个重要关系是，党支部在领办合作社时，要利用这种方式促进集体经济发展，也要注意到专业合作社成员与集体经济组织成员的不完全一致问题，厘清集体经济组织与专业合作社的产权及其收益关系，确保集体经济组织在专业合作社中的产权及其收益。这既可以保障集体经济组织成员的权益，也可以通过党支部领办合作社促进集体经济的发展。

The relationship between “hitching a ride” development and “building a boat” development of the rural collective economy should be correctly grasped. Currently, some rural collective economic organizations join companies or cooperatives through equity investment. This “hitching a ride” development model is an easy-to-start and low-risk development path under conditions where rural collective economic organizations lack management talent, have insufficient capital, and have weak market development capabilities. For the rural collective economy to develop and grow, it is difficult to truly achieve this by relying solely on “hitching a ride” development; it requires “building its own boat” for development. Therefore, it is not possible to remain permanently at the “hitching a ride” development stage when the collective economy is just starting. The mindset of being content with small success needs to be abandoned. For rural collective economic organizations that, after “hitching a ride” development, have achieved talent cultivation and growth, capital accumulation, and enhanced management capacity and meet the conditions, they should make a timely transition to “building a boat” development. Currently, there are new opportunities for “building a boat” development of the rural collective economy: in addition to the value orientation of common prosperity, there is support from laws and policies, opportunities from coordinating new industrialization, new urbanization, and comprehensive rural revitalization, and opportunities from the development of new business forms. At the same time, before the *Rural Collective Economic Organization Law* came into effect, some rural collective economic organizations chose to register as companies in order to engage in business operations. After the implementation of the *Rural Collective Economic Organization Law*, for unregistered rural collective economic organizations, consideration could be given to exploring a return to their original nature and registering as special legal persons. For companies that have already been registered, they should be clearly designated as enterprises affiliated with the village collective economic organization, so as to safeguard the rights and interests of the collective economic organization and all its members, and to prevent the stripping away of the rights and interests of the collective economic organization and its members through corporate forms.

正确把握农村集体经济“搭船”发展与“造船”发展的关系。现在，一些农村集体经济组织通过入股引入到公司或合作社，这一“搭船”发展模式是在农村集体经济组织的经营人才缺乏、资本不足、市场开拓能力弱的条件下的一种容易起步和风险小的发展路径。农村集体经济要发展壮大，仅靠“搭船”发展是很难真正实现的，需要自己“造船”发展。因而，不能永远停留在集体经济起步时的“搭船”发展阶段，需要抛弃小富即安思维，在经过“搭船”发展实现人才培育成长、资金积累、经营能力提升而具备条件的农村集体经济组织，适时向“造船”发展转型。当前，农村集体经济“造船”发展有新机遇：除了共同富裕的价值取向外，有法律、政策支持，有统筹新型工业化、新型城镇化、乡村全面振兴的机遇，有新业态发展的机遇。同时，在《农村集体经济组织法》未施行的情况下，一些农村集体经济组织为了能够从事经营，选择注册为公司。《农村集体经济组织法》实施后，未登记的农村集体经济组织，可考虑探索归其本来、注册为特别法人。已注册登记的公司，要将其明确为村集体经济组织所属企业，以保障集体经济组织及其全体成员的权益，防止以公司等形式将集体经济组织及其成员的权益剥离掉。

(3) Building Leading Organizations Capable of Driving Rural Collective Economic Development

（三）构建能够带动农村集体经济发展的龙头组织

On the basis of substantiating the three levels of rural collective economic organizations, leading organizations capable of driving rural collective economic development should be established. From a practical perspective, generally speaking, the strength of group, village, and township collective economic organizations is relatively weak, and their ability to expand markets is not strong. In view of this, some localities, based on rural collective economic organizations and specialized cooperatives, have built cross-township leading organizations centered on improving the quality of regional agricultural products, building brands, and expanding marketing operations. In their practice of building leading organizations, Party organizations use planning to guide, integrate resources and cultivate and supply management talent through shareholding cooperation with rural collective economic organizations and cooperatives, enhance the capacity for product quality improvement and market expansion, play a leading role in the revitalization of rural industries, and promote comprehensive rural revitalization based on industrial revitalization. This is another practical innovation in the coordination and accumulation mechanism of rural collective economic organizations. In advancing the practice of building leading organizations, attention should be paid to properly handling certain issues. First, grasp their organizational attributes. Based on shareholding cooperation with rural collective economic organizations and specialized cooperatives, they should be defined as shareholding cooperatives. Second, grasp their organizational functions. Their main functions are to play a role in overall planning and guidance, promote product quality improvement, innovate business forms, and enhance development capacity, market expansion capability, and competitiveness through unified branding and unified marketing services, thereby driving the development of the rural collective economy. Third, on the basis of summarizing practical experience, the construction of leading organizations should be standardized, and the relationships that need to be properly handled and the problems that may arise should be clarified. This includes both strengthening Party leadership to promote resource integration and avoiding simplistic administrative methods for cooperation or building leading organizations in form only. Joint efforts need to be promoted through shareholding cooperation, with joint consultation, joint construction, and shared benefits with collective economic organizations and specialized cooperatives, thereby driving rather than weakening township, village, and group collective economies. The construction of such leading organizations should be adapted to local conditions; they can span multiple townships or expand in villages with a good development foundation, so that they can truly become an effective pathway for the rural collective economy to transition from “hitching a ride” development to “building a boat” development.

在做实三级农村集体经济组织基础上，构建能够带动农村集体经济发展的龙头组织。从现实看，一般而言，组、村、乡镇集体经济组织的实力较弱，拓展市场的能力不强。鉴于此，一些地方以农村集体经济组织、专业合作社为基础，围绕区域农产品品质提升、品牌打造和营销业务拓展，构建跨乡镇龙头组织。他们在构建龙头组织的实践中，党组织以规划引领，通过与农村集体经济组织、合作社的股份合作，整合资源和输送培养经营人才，增强产品品质提升能力和市场拓展能力，在乡村产业振兴中发挥了龙头带动作用，并以产业振兴为基础促进了乡村全面振兴。这是农村集体经济组织的统筹和积累机制的又一实践创新。在推进龙头组织建设的实践中，要注意把握好一些问题。一是把握其组织属性。基于以农村集体经济组织及专业合作社的股份合作，将其界定为股份合作社。二是把握其组织功能。主要是发挥统筹规划及其引领作用，促进产品质量提升，创新业态，通过统一品牌和统一营销服务，提升发展能力、市场开拓力、竞争力，带动农村集体经济发展。三是在总结实践经验的基础上，对龙头组织建设进行规范，并明确需要处理好的关系和回避可能发现的问题。包括既要加强党的领导促进资源整合，又要避免简单化的行政方式进行合作或搭建形式上的龙头组织，需要通过股份合作的方式推进联合，与集体经济组织、专业合作社共商、共建、共享，进而带动而不是削弱乡镇、村、组集体经济。这一龙头组织的构建，要因地制宜，可以跨乡，也可以在发展基础好的村拓展，使之能够真正成为农村集体经济由“搭船”发展向“造船”发展转型的一种有效实现路径。

(Author: Zheng Yougui, Professor at the University of the Chinese Academy of Social Sciences, Researcher and Doctoral Supervisor at the Institute of Contemporary China Studies)

（作者：郑有贵,中国社会科学院大学教授、当代中国研究所研究员、博士生导师）

Online editor: You Heng

网络编辑：有恒