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<section style="box-sizing: border-box;font-style: normal;font-weight: 400;text-align: justify;font-size: 16px;"><section style="margin-top: 10px;margin-bottom: 10px;overflow: hidden;font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;text-align: left;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: 4em;height: 4em;border-radius: 50%;background-position: center center;background-repeat: no-repeat;background-size: cover;background-image: url("http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhJ5cXQibLzoJwricx6u2fgetC6CDM0Pj4XfNEKJACExaKHQtLoLYA0kJvfHroq1kwaUnibwgGzLTl0w/640?wx_fmt=png");overflow: hidden;box-sizing: border-box;"><section style="height: 100%;overflow: hidden;line-height: 0;vertical-align: middle;max-width: 100%;box-sizing: border-box;"> <img data-ratio="0.9409091" data-w="220" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhJ5cXQibLzoJwricx6u2fgetC6CDM0Pj4XfNEKJACExaKHQtLoLYA0kJvfHroq1kwaUnibwgGzLTl0w/640?wx_fmt=png" style="width: 100%;height: 100%;opacity: 0;box-sizing: border-box;" width="100%" data-type="png"  /></section></section><section style="width: 100%;margin-left: 1.2em;margin-top: -1.2em;box-sizing: border-box;"><section style="float: left;white-space: nowrap;overflow: hidden;display: inline-block;vertical-align: middle;height: 2em;margin-left: 1em;border-bottom-left-radius: 1em;border-left: 1px solid rgb(156, 94, 21);border-bottom: 1px solid rgb(156, 94, 21);max-width: 85% !important;box-sizing: border-box;"><section style="margin-left: 1.5em;line-height: 1.5;padding-right: 0.5em;font-size: 11px;color: rgb(56, 30, 5);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">点击蓝字关注公众号</p></section></section><section style="float: left;width: 5%;margin-left: -1px;box-sizing: border-box;"><section style="width: 6px;height: 6px;margin-top: 1.82em;border-radius: 100%;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(156, 94, 21);padding: 10px;box-sizing: border-box;"><section style="color: rgb(56, 30, 5);letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">作者广州市设计院曾勤，广州市设计院副总工程师刘名瑞，广州市设计院城市设计与景观所所长助理池飞帆，广州市设计院关洁茹，西安建筑科技大学建筑学院讲师、硕士生导师 ，德国魏玛包豪斯大学博士后、客座研究员王阳在《规划师》2019年第24期撰文，村庄规划在村庄治理中起到“自上而下”强制管控的作用，村规民约则是村庄自治的重要表现形式，二者在编制形式、内容、作用机制和管理模式等方面各有优势，但由于缺乏协作而难以发挥合力作用。文章从村庄自治的视角，以广州市乡村地区为研究对象，针对村庄规划管理缺失、村庄规划落地困难、村规民约治理体系不完善、村庄规划与村规民约缺乏高效联动等实际问题，在梳理整合村庄规划、村规民约及村庄自治三者关系的基础上，提出将村庄规划纳入村规民约的衔接思路及村规民约自我完善的路径。同时，从明确事权划分、完善议事制度、建立奖惩制度和丰富表达体例四方面探索构建广州市自治型村庄治理模式，并选取典型村庄作为村规民约优化试点，以期为其他地区村庄治理提供参考。</p></section><section style="margin-top: 10px;margin-bottom: 10px;font-size: 13px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;height: 5px;background: -webkit-linear-gradient(left, rgb(156, 94, 21), rgba(255, 247, 234, 0)) white;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="font-size: 12px;letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 关键词 ] 村庄自治；村庄规划；村规民约；广州市乡村地区</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 文章编号 ]1006-0022(2019)24-0041-07</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 中图分类号 ]TU981　</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 文献标识码 ]B </p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[ 引文格式 ]曾勤，刘名瑞，池飞帆，等．村庄自治视角下村庄规划与村规民约的衔接研究——以广州市乡村地区为例[J]．规划师，2019(24)：41-47．</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/8ORUa9yKVt4UpYVIEmVcpvQREGaekIdiafORa774Ymyf39ERibY0Whwnd8ef2KqibC19eAkKM4RPkk7Oic1523C56A/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">一</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">广州市乡村地区的村庄规划、村规</strong><strong style="box-sizing: border-box;">民约与存在问题</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">对于我国建设发展的前沿地区而言，<span style="box-sizing: border-box;">有效的乡村建设与治理已成为城乡治理</span><span style="box-sizing: border-box;">体系的重要构成部分，是实现乡村振兴</span><span style="box-sizing: border-box;">的关键。广州市是珠三角地区乃至全国</span><span style="box-sizing: border-box;">乡村建设的先驱地，其得天独厚的自然</span><span style="box-sizing: border-box;">区位与经济条件相得益彰，在过去几十</span><span style="box-sizing: border-box;">年的发展中持续探索村庄规划和村规民</span><span style="box-sizing: border-box;">约的编制，为广州市乡村建设提供了重</span><span style="box-sizing: border-box;">要的指导，同时也面临着诸多的困境与</span><span style="box-sizing: border-box;">挑战。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）村庄规划</p></section></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">经过30年的探索，广州市村庄规<span style="box-sizing: border-box;">划经历了从最初的物质空间规划转向内</span><span style="box-sizing: border-box;">涵发展的三个演变阶段：环境整治阶段</span><span style="box-sizing: border-box;">(1996～2006年)、开始关注乡村利益阶</span><span style="box-sizing: border-box;">段(2007～2009年) 和注重乡村内涵阶</span><span style="box-sizing: border-box;">段(2013～2014年)。村庄规划作为广</span><span style="box-sizing: border-box;">州市乡村地区发展的核心，经过三个阶</span><span style="box-sizing: border-box;">段的发展演变已逐步成熟完善，其在不</span><span style="box-sizing: border-box;">同的发展阶段为村庄建设与治理提供了</span><span style="box-sizing: border-box;">科学指导，具体体现在村庄分类、居住</span><span style="box-sizing: border-box;">用地布局、建造指引、风貌管控及服务</span><span style="box-sizing: border-box;">设施配置五方面。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">一是对村庄进行分类。将村庄划定<span style="box-sizing: border-box;">为四类，即城中村、城边村、远郊村和</span><span style="box-sizing: border-box;">搬迁村。村庄分类为不同地区、不同发</span><span style="box-sizing: border-box;">展阶段、不同发展模式的村庄建设与发</span><span style="box-sizing: border-box;">展提供了针对性的指导，为村庄的建设</span><span style="box-sizing: border-box;">与治理奠定了基础。二是划定居住用地</span><span style="box-sizing: border-box;">范围并提出用地指标。确定村庄新增经</span><span style="box-sizing: border-box;">济发展留用地、新增住宅用地的规模和</span><span style="box-sizing: border-box;">用地界线，紧密关注村民的利益和现实</span><span style="box-sizing: border-box;">生活需求，是引导村民积极参与村庄建</span><span style="box-sizing: border-box;">设、规范建设的关键( 图1)。三是提出</span><span style="box-sizing: border-box;">建造指引。部分村庄规划对村民住宅的</span><span style="box-sizing: border-box;">朝向、建筑间距等内容提出更详细的规</span><span style="box-sizing: border-box;">定，统一的建设标准有利于村庄建设管</span><span style="box-sizing: border-box;">理。四是风貌管控。提出建筑和景观风</span><span style="box-sizing: border-box;">貌指引，更容易打造具有岭南地域风貌</span><span style="box-sizing: border-box;">与历史文化的特色村庄。五是完善的服</span><span style="box-sizing: border-box;">务设施配置。配置合理的服务设施是村</span><span style="box-sizing: border-box;">民高品质的生活与村庄发展成熟阶段的重</span><span style="box-sizing: border-box;">要体现( 图2)。</span></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.6682243" data-w="1070" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miab1AtpanCYiaNm4rDh9hvvSFJP3fYBa9w3EfF2hm6vGk4C7qrnw790CAPktIhnA0micicKHtPBTsDSw/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.5907407" data-w="1080" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miab1AtpanCYiaNm4rDh9hvvSBKgUl09ELIqgDR15k5xSdiaBp3oh9ADyfVxc9jCo51cJ5DJyiaibrgnbw/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二）村规民约</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">村规民约是乡村治理的重要手段，<span style="box-sizing: border-box;">最早可追溯到北宋时期的《吕氏乡约》。</span><span style="box-sizing: border-box;">村规民约历经演变，在民国时期形成以</span><span style="box-sizing: border-box;">村规民约为中心的完整乡村治理体系，</span><span style="box-sizing: border-box;">涉及村治、人才、村委会和道德等内容。</span><span style="box-sizing: border-box;">改革开放后，国家对村庄的管理出现“真空”，《村民委员会组织法》(1988年)</span><span style="box-sizing: border-box;">和《村民委员会自治法》(1998 年) 的先</span><span style="box-sizing: border-box;">后实施赋予了村规民约一定的法律地位</span><span style="box-sizing: border-box;">和属性。村规民约成为一种介于正式与</span><span style="box-sizing: border-box;">非正式间的民间权威规范，其内容拓展</span><span style="box-sizing: border-box;">到产业发展、生产生活、乡村营建及管</span><span style="box-sizing: border-box;">理制度四个板块，成为名副其实的“乡</span><span style="box-sizing: border-box;">村自治小宪法”。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">目前广州市超过1000个村庄编制<span style="box-sizing: border-box;">了村规民约，编制完成率达95%，其中</span><span style="box-sizing: border-box;">与村庄治理内容相关的主要包括乡村建</span><span style="box-sizing: border-box;">设、议事制度和奖惩方式等内容。①乡</span><span style="box-sizing: border-box;">村建设包括原则性规定、标准性规定和</span><span style="box-sizing: border-box;">程序性规定，是村民组织对乡村建设行</span><span style="box-sizing: border-box;">为进行治理的主要依据。其中，原则性</span><span style="box-sizing: border-box;">规定主要围绕村庄土地使用和建设应符</span><span style="box-sizing: border-box;">合村庄规划来制定；标准性规定提出村</span><span style="box-sizing: border-box;">民住宅建设应符合用地条件、建设层数、</span><span style="box-sizing: border-box;">层高和间距等标准；程序性规定主要为</span><span style="box-sizing: border-box;">报建程序的规定。②议事制度的建立主</span><span style="box-sizing: border-box;">要是设立民主议事厅和制定详细的议事</span><span style="box-sizing: border-box;">流程，个别村庄甚至设置“一事一议”</span><span style="box-sizing: border-box;">制度，对乡村工程治理起到一定的作用。</span><span style="box-sizing: border-box;">③奖惩方式主要是针对违反乡村建设的</span><span style="box-sizing: border-box;">行为进行通告批评和经济处罚，但由于</span><span style="box-sizing: border-box;">村委会无执法权导致惩处力度有限。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（三） 存在问题</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">完善的村庄规划系统为村庄建设与<span style="box-sizing: border-box;">治理提供了巨大的外部作用力，村规民</span><span style="box-sizing: border-box;">约则为村庄自治提供了内生动力，二者</span><span style="box-sizing: border-box;">共同作用可有效推动和引导村庄建设发</span><span style="box-sizing: border-box;">展，形成有效的村庄治理。然而，从广</span><span style="box-sizing: border-box;">州市乡村地区村庄建设情况来看，村庄</span><span style="box-sizing: border-box;">规划与村规民约双重治理模式并没有充</span><span style="box-sizing: border-box;">分发挥积极作用。从规划建设与管理角</span><span style="box-sizing: border-box;">度来看，广州市乡村地区已初步形成村</span><span style="box-sizing: border-box;">庄规划与村规民约“上下结合”的治理</span><span style="box-sizing: border-box;">模式雏形。从整体来看，目前广州市乡</span><span style="box-sizing: border-box;">村地区治理存在诸多难点与挑战，主要</span><span style="box-sizing: border-box;">包括规划管理缺失、村庄规划落地困难、</span><span style="box-sizing: border-box;">村规民约缺乏实际效力、村庄规划与村</span><span style="box-sizing: border-box;">规民约缺乏有效衔接等问题。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(1) 规划管理的缺失。目前广州市乡<span style="box-sizing: border-box;">村地区的规划许可制度逐步完善，但在</span><span style="box-sizing: border-box;">整个建房管理流程中“厚此薄彼”，规</span><span style="box-sizing: border-box;">划核实和产权登记环节缺失，同时村民</span><span style="box-sizing: border-box;">的规划核实与产权确权意识较为薄弱，</span><span style="box-sizing: border-box;">导致违建乱建等现象层出不穷，直接影</span><span style="box-sizing: border-box;">响乡村建设治理的水平，这是广州市乡</span><span style="box-sizing: border-box;">村建设治理面临的关键问题。据统计，</span><span style="box-sizing: border-box;">截至2018年8月，广州市7 个片区共</span><span style="box-sizing: border-box;">核发乡村建设规划许可约2400宗，而</span><span style="box-sizing: border-box;">已办理规划核实的数量仅占1%。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(2) 大量村庄规划面临难以实施落地<span style="box-sizing: border-box;">的困境。一方面，2014年广州市组织编</span><span style="box-sizing: border-box;">制完成最新一轮的村庄规划，但由于编</span><span style="box-sizing: border-box;">制时间短、范围广和任务重等客观因素，</span><span style="box-sizing: border-box;">该轮村庄规划未能深入掌握不同地区村</span><span style="box-sizing: border-box;">庄的生活组织方式、生产形式、治理模</span><span style="box-sizing: border-box;">式和土地产权等情况，最终导致村庄规</span><span style="box-sizing: border-box;">划与村庄实际情况脱离，难以符合村民</span><span style="box-sizing: border-box;">的基本意愿。另一方面，2014版村庄规</span><span style="box-sizing: border-box;">划编制后，广州市城市总体规划修编、</span><span style="box-sizing: border-box;">控制性详细规划调整等系列外部条件的</span><span style="box-sizing: border-box;">变化，导致村庄规划与相关上位规划产</span><span style="box-sizing: border-box;">生不可避免的冲突。此外，对于已落地</span><span style="box-sizing: border-box;">的项目亦缺乏完善的管理机制，无法充</span><span style="box-sizing: border-box;">分发挥规划的治理作用。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(3) 村规民约治理体系不够完善。一<span style="box-sizing: border-box;">方面，村庄建设的规定较为形式化，缺</span><span style="box-sizing: border-box;">乏实施性。从编制内容来看，注重乡村</span><span style="box-sizing: border-box;">建设项目报建而缺乏对建设全过程的监</span><span style="box-sizing: border-box;">督管理；从编制深度来看，缺少对建设</span><span style="box-sizing: border-box;">指引的细则指标和规定(仅极少部分涉及</span><span style="box-sizing: border-box;">相关内容)。另一方面，有效治理的管理</span><span style="box-sizing: border-box;">和保障机制严重缺失。广州市绝大部分</span><span style="box-sizing: border-box;">村庄民主议事制度不完善，除村“两委”(村</span><span style="box-sizing: border-box;">党支部委员会和村民自治委员会) 外，缺</span><span style="box-sizing: border-box;">乏营建社、农业产销班等与村庄自治直</span><span style="box-sizing: border-box;">接挂钩的组织机构。同时，奖惩制度的</span><span style="box-sizing: border-box;">单调和缺失也制约了村规民约在社会治</span><span style="box-sizing: border-box;">理中进一步发挥作用。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(4) 村庄规划与村规民约之间缺乏有<span style="box-sizing: border-box;">效联动。一方面，村庄规划与村规民约</span><span style="box-sizing: border-box;">在编制内容上存在极大的差异：前者主</span><span style="box-sizing: border-box;">要涉及村庄用地布局、设施建设和环境</span><span style="box-sizing: border-box;">整治等建设相关内容，并对其作出具体</span><span style="box-sizing: border-box;">部署；后者则注重土地管理、民主议</span><span style="box-sizing: border-box;">事和乡风民俗等内容。由于二者内容缺</span><span style="box-sizing: border-box;">乏有效衔接，导致在乡村建设与治理中</span><span style="box-sizing: border-box;">难以发挥互补效果。另一方面，规划编</span><span style="box-sizing: border-box;">制联动低效。编制村庄规划的第三方设</span><span style="box-sizing: border-box;">计院与编制村规民约的村民缺乏充分的</span><span style="box-sizing: border-box;">沟通和交流，村庄规划与村规民约在建</span><span style="box-sizing: border-box;">设要求和管理制度等方面存在巨大差异，</span><span style="box-sizing: border-box;">最终导致村庄规划难以被村民理解和认</span><span style="box-sizing: border-box;">可，村规民约则因缺乏规范性指导而难</span><span style="box-sizing: border-box;">以达到有效的治理效果。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/8ORUa9yKVt4UpYVIEmVcpvQREGaekIdiafORa774Ymyf39ERibY0Whwnd8ef2KqibC19eAkKM4RPkk7Oic1523C56A/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">自治视角下广州市村庄规划与</strong><strong style="box-sizing: border-box;">村规民约衔接探究</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">所谓自治，是指村民行使民主权力，<span style="box-sizing: border-box;">依法对村庄建设、村民行为等进行管理</span><span style="box-sizing: border-box;">的社会制度，充分发挥村民、村委会等</span><span style="box-sizing: border-box;">主体的建设作用，最终实现全村共建、</span><span style="box-sizing: border-box;">共享、共治的发展目标。从制度属性来看，</span><span style="box-sizing: border-box;">非正式的村规民约比正式的村庄规划更</span><span style="box-sizing: border-box;">能体现村民意愿，因此广州市村庄规划</span><span style="box-sizing: border-box;">要“因地制宜”“因时制宜”地嵌入村</span><span style="box-sizing: border-box;">规民约，建立起在正式制度框架与约束</span><span style="box-sizing: border-box;">范围内相互支撑、相互补充的动态开放</span><span style="box-sizing: border-box;">治理体系，从而实现对村庄的民主治理、</span><span style="box-sizing: border-box;">自主治理与合作治理。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）村庄自治的要点</p></section></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">村庄自治的实质是构建具备高度自<span style="box-sizing: border-box;">治性质的“村庄共同体”，村民能依法</span><span style="box-sizing: border-box;">行使权力，“以实施其有关集体事务的</span><span style="box-sizing: border-box;">权威，并且赋予此权威以合法性”。根</span><span style="box-sizing: border-box;">据广州市村庄发展建设现状和趋势来看，</span><span style="box-sizing: border-box;">高度自治的村庄应当具备相当程度独立</span><span style="box-sizing: border-box;">管理内部事务的能力，其关键要协调好</span><span style="box-sizing: border-box;">以下四方面关系。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(1) 村规民约——因地制宜、依法编<span style="box-sizing: border-box;">制的具有法律效力和符合风俗民情的管</span><span style="box-sizing: border-box;">理条文。不同于政府法律条文，村规民</span><span style="box-sizing: border-box;">约是在“村庄共同体”自身成长过程中</span><span style="box-sizing: border-box;">逐渐形成的，是村民共同认可和执行的</span><span style="box-sizing: border-box;">地方“小宪法”。村规民约的内容涉及</span><span style="box-sizing: border-box;">所有与村民利益、村庄公共利益相关的</span><span style="box-sizing: border-box;">事务，并明确规定处罚方式和奖惩内容。</span><span style="box-sizing: border-box;">此外，村规民约还能强化村民与村民组</span><span style="box-sizing: border-box;">织作为村庄治理主体的地位，并与法律</span><span style="box-sizing: border-box;">法规、法定规划充分衔接以完善村庄的</span><span style="box-sizing: border-box;">法律体系，为村庄共同体建设提供有效</span><span style="box-sizing: border-box;">依据。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(2) 村委会——实现自我管理的最高<span style="box-sizing: border-box;">权力机关。根据《村委会组织法》(2010</span><span style="box-sizing: border-box;">修订) 规定“乡、民族乡、镇的人民政府</span><span style="box-sizing: border-box;">对村民委员会的工作给予指导、支持和</span><span style="box-sizing: border-box;">帮助，但是不得干预依法属于村民自治</span><span style="box-sizing: border-box;">范围内的事项”。这赋予了村委会双重</span><span style="box-sizing: border-box;">属性：一是作为处理村庄与上级部门之</span><span style="box-sizing: border-box;">间事务的协调机构；二是作为处理村庄</span><span style="box-sizing: border-box;">内部共同事务的权力机构，在这一属性</span><span style="box-sizing: border-box;">上，村委会是真正的村庄会议，是“村</span><span style="box-sizing: border-box;">庄共同体”的象征。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(3) 村庄规划——具有“在地”特征<span style="box-sizing: border-box;">的村庄建设指引。不同于城镇规划，一</span><span style="box-sizing: border-box;">方面乡村的生活方式、产业结构和人口</span><span style="box-sizing: border-box;">构成与城市存在巨大差异，不能用城市</span><span style="box-sizing: border-box;">规划的逻辑和思维来编制乡村规划；另</span><span style="box-sizing: border-box;">一方面乡村地区本身具备分散的特征，</span><span style="box-sizing: border-box;">不同乡村的发展存在巨大差异。因此，</span><span style="box-sizing: border-box;">村庄规划的核心难点在于是否“在地”，</span><span style="box-sizing: border-box;">能否处理好产业、制度建设和群众工作</span><span style="box-sizing: border-box;">之间的关系。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(4) 各类组织机构及村民个体——村<span style="box-sizing: border-box;">庄治理的多元主体。无论是村庄规划还</span><span style="box-sizing: border-box;">是村规民约，其编制都以村庄公共治理</span><span style="box-sizing: border-box;">为目标导向，其实施都基于公众参与、公</span><span style="box-sizing: border-box;">众认同，其关键都是协调各类利益既得</span><span style="box-sizing: border-box;">者、利益相关者的诉求。因此，从实施</span><span style="box-sizing: border-box;">角度来说，村庄治理不能仅依靠政府和</span><span style="box-sizing: border-box;">市场，还应充分发挥村民个体、基层组</span><span style="box-sizing: border-box;">织及其他相关利益团体的作用，各方主</span><span style="box-sizing: border-box;">体一致行动，实现最大程度的村庄自治。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二） 衔接思路与方法</p></section></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">针对村庄规划落地难、村规民约实<span style="box-sizing: border-box;">施效果不佳等问题，本文以治理有效、</span><span style="box-sizing: border-box;">全民治理和规划易懂为基本要求，提出</span><span style="box-sizing: border-box;">将村庄规划纳入村规民约的衔接思路和</span><span style="box-sizing: border-box;">完善村规民约机制的方法，以求达到提</span><span style="box-sizing: border-box;">高村庄规划的在地性、亲民性和强化村</span><span style="box-sizing: border-box;">规民约实施效力的目的。</span></p><p style="margin: 0px;text-indent: 2em;white-space: normal;padding: 0px;box-sizing: border-box;">(1) 将村庄规划部分内容直接纳入村<span style="box-sizing: border-box;">规民约以实现规划的有效落地。针对部</span><span style="box-sizing: border-box;">分镇街、村在村民住宅报建过程中未严</span><span style="box-sizing: border-box;">格执行村庄规划内容，以及村民对村庄</span><span style="box-sizing: border-box;">规划内容不甚了解的情况，将村庄规划</span><span style="box-sizing: border-box;">中村庄建设治理的内容纳入村规民约，</span><span style="box-sizing: border-box;">进一步提升村庄规划的实施效率。其中，</span><span style="box-sizing: border-box;">居住用地范围与建设标准、设施配置等</span><span style="box-sizing: border-box;">涉及建设的内容可以直接纳入村规民约；</span><span style="box-sizing: border-box;">功能区划、产业布局等内容通过议事内</span><span style="box-sizing: border-box;">容的形式纳入治理范围；人居环境整治、</span><span style="box-sizing: border-box;">生态环境建设等内容可以村庄建设项目</span><span style="box-sizing: border-box;">库的形式与美丽乡村建设项目相衔接，</span><span style="box-sizing: border-box;">以议事内容的形式加以落实(表1)。</span></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.6579683" data-w="1073" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miab1AtpanCYiaNm4rDh9hvvSuKTdVR1JtUcpMLshmkcw3lRWayhyhicY8kJC8LXShQRdDw5V3w9LapA/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(2) 优化、完善村规民约机制。以乡<span style="box-sizing: border-box;">村建设治理为导向，除了将村庄规划的</span><span style="box-sizing: border-box;">相关内容以适当形式纳入村规民约外，</span><span style="box-sizing: border-box;">村规民约还可细化以下四方面内容：一</span><span style="box-sizing: border-box;">是规范村规民约的提法和表述。主要对</span><span style="box-sizing: border-box;">村规民约中一些与现行政策不相适应的</span><span style="box-sizing: border-box;">提法进行修正，同时明确乡村治理中村</span><span style="box-sizing: border-box;">民与村民组织的权责，使之规范化。二</span><span style="box-sizing: border-box;">是完善村规民约关于乡村建设治理的内</span><span style="box-sizing: border-box;">容。目前广州市大部分村规民约关于村</span><span style="box-sizing: border-box;">庄建设治理的内容较少，多为简单地要</span><span style="box-sizing: border-box;">求村民需按照村庄规划内容建房，缺少</span><span style="box-sizing: border-box;">关于乡村建设的程序和标准。因此，首</span><span style="box-sizing: border-box;">先，应当明确村庄规划的法定地位，告</span><span style="box-sizing: border-box;">知村庄规划(没编制村庄规划的需要编</span><span style="box-sizing: border-box;">制村庄居民点管控边界) 的编制流程，</span><span style="box-sizing: border-box;">强调村民建房不得超出村庄居民点管控</span><span style="box-sizing: border-box;">边界；其次，强调村民建房报建、核实</span><span style="box-sizing: border-box;">和产权登记三个阶段的落实，强化村民</span><span style="box-sizing: border-box;">产权意识；最后，通过村民议事确定本</span><span style="box-sizing: border-box;">村住宅建设标准，并将其纳入村规民约</span><span style="box-sizing: border-box;">中。三是根据各村庄存在的实际问题，</span><span style="box-sizing: border-box;">结合政策要求制定村规民约操作细则，</span><span style="box-sizing: border-box;">如村庄规划调整机制、宅基地权属确认、</span><span style="box-sizing: border-box;">社权属用地③的使用与分配细则等。四是</span><span style="box-sizing: border-box;">增加村民组织的相关规定。自治、德治、</span><span style="box-sizing: border-box;">法治相结合是乡村建设治理的有效手段，</span><span style="box-sizing: border-box;">村民组织是保障乡村治理有效的重要主</span><span style="box-sizing: border-box;">体。建议在村规民约中增加村民组织建</span><span style="box-sizing: border-box;">设的相关建议，以保障政府政策能够</span><span style="box-sizing: border-box;">有效落地。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（三） 构建自治型村庄治理模式</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">基于上文的分析，笔者认为可以搭<span style="box-sizing: border-box;">建村庄规划与村规民约的双重体系治理，</span><span style="box-sizing: border-box;">从明确事权、完善议事制度、完善奖惩</span><span style="box-sizing: border-box;">措施和丰富表达形式四方面提出融入村</span><span style="box-sizing: border-box;">庄规划后村规民约的编制实施策略，最</span><span style="box-sizing: border-box;">终实现构建广州市自治型村庄治理新模</span><span style="box-sizing: border-box;">式的最终目标。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(1) 明确乡村建设事权划分。乡村建<span style="box-sizing: border-box;">设治理有效的实质在于治理责权、治理</span><span style="box-sizing: border-box;">依据和治理保障的互动与组合，是公共</span><span style="box-sizing: border-box;">权力的空间重组。广州市乡村建设治理</span><span style="box-sizing: border-box;">主要包含三个层面的主体，分别是以市、</span><span style="box-sizing: border-box;">区、镇街三级规划管理部门及其他相关</span><span style="box-sizing: border-box;">部门为核心组成的政府部门；以村民组</span><span style="box-sizing: border-box;">织和村民个人为核心组成的基层主体；</span><span style="box-sizing: border-box;">以各设计单位、测量单位为核心形成的</span><span style="box-sizing: border-box;">第三方主体。在乡村建设治理过程中，</span><span style="box-sizing: border-box;">应当处理好彼此关系，明晰权责，并在</span><span style="box-sizing: border-box;">村规民约、村庄自治章程等规章制度中</span><span style="box-sizing: border-box;">加以体现，从而提高广州市乡村地区的</span><span style="box-sizing: border-box;">建设治理水平。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(2) 完善基于议事制度的治理体系。<span style="box-sizing: border-box;">通过上文分析可知，因治理视角的差异，</span><span style="box-sizing: border-box;">村庄规划的内容无法完全纳入村规民约，</span><span style="box-sizing: border-box;">故要从议事内容和议事组织机构两方面</span><span style="box-sizing: border-box;">着手完善治理体系，为广州市村庄建设</span><span style="box-sizing: border-box;">提供保障：一是将宅基地分配征收、产</span><span style="box-sizing: border-box;">业发展、人均环境提升和配建服务等村</span><span style="box-sizing: border-box;">庄公共事务纳入村规民约，为村庄规划</span><span style="box-sizing: border-box;">的高效实施提供指引；二是加强基层</span><span style="box-sizing: border-box;">村民组织机构建设，如乡贤会、乡村建</span><span style="box-sizing: border-box;">设协作社、农业产销班和“一村一法律</span><span style="box-sizing: border-box;">顾问”等，各组织各司其职，分工协作，</span><span style="box-sizing: border-box;">共同管理村庄。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(3) 完善奖惩措施。完善的奖惩措施<span style="box-sizing: border-box;">是村规民约有效实施的重要保障，也是</span><span style="box-sizing: border-box;">村庄治理的重要手段。具体而言，对于</span><span style="box-sizing: border-box;">违反村规民约的惩罚措施主要包括经济</span><span style="box-sizing: border-box;">处罚( 村民最在乎的手段)、通报批评及</span><span style="box-sizing: border-box;">其他强制执行手段；对于在村庄治理和</span><span style="box-sizing: border-box;">建设中做好表率或贡献较大的单位或个</span><span style="box-sizing: border-box;">人，可颁发奖励证书和给予适当的经济</span><span style="box-sizing: border-box;">奖励，有利于强化村民自治意识，实现</span><span style="box-sizing: border-box;">村庄的有效治理。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(4) 丰富村规民约的表达形式。从广<span style="box-sizing: border-box;">州市过去三十年的村庄治理手段来看，</span><span style="box-sizing: border-box;">村庄规划工作具备极强的专业性和技术</span><span style="box-sizing: border-box;">性特征，而村规民约则呈现内容繁多冗</span><span style="box-sizing: border-box;">长和极其简洁的两极化特征，这对村民</span><span style="box-sizing: border-box;">认识和解读村庄规划造成了极大的困扰，</span><span style="box-sizing: border-box;">进一步阻碍了村庄治理手段的有效实施。</span><span style="box-sizing: border-box;">因此，为了使治理手段更加“接地气”，</span><span style="box-sizing: border-box;">做到“村民易懂、村委会可用、上级便</span><span style="box-sizing: border-box;">管”，笔者认为广州市村规民约应当包</span><span style="box-sizing: border-box;">含两种表达方式：一是大而全的村规民</span><span style="box-sizing: border-box;">约表达形式。包含村庄建设、民俗风情</span><span style="box-sizing: border-box;">和道德伦理等方面。同时，将与村庄治</span><span style="box-sizing: border-box;">理直接相关的村民建房管理规定独立成</span><span style="box-sizing: border-box;">章，该篇章主要包括村庄规划的编制与</span><span style="box-sizing: border-box;">调整、村民建房标准、建房程序、公共</span><span style="box-sizing: border-box;">设施和乡村建设项目库等内容，为村民</span><span style="box-sizing: border-box;">建房提供详细的服务指南。二是精而简</span><span style="box-sizing: border-box;">的村规民约表达形式。以简单易懂、重</span><span style="box-sizing: border-box;">点突出为基本原则，突出乡村建设与治</span><span style="box-sizing: border-box;">理的重点内容，有利于向村民普及宣传。</span><span style="box-sizing: border-box;">主要包括通俗易懂的文字表述、图文结</span><span style="box-sizing: border-box;">合形式及网络平台等方式。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">综上所述，在乡村建设治理环节，<span style="box-sizing: border-box;">村庄规划与村规民约应充分发挥自身优</span><span style="box-sizing: border-box;">势，共同实现治理有效、村庄自治的发</span><span style="box-sizing: border-box;">展目标。村庄规划技术性强、成果体例</span><span style="box-sizing: border-box;">完善，在编制时应充分考虑政府及各职</span><span style="box-sizing: border-box;">能部门、村民组织及村民的诉求，形成</span><span style="box-sizing: border-box;">好用、有用、完备的成果；村规民约的</span><span style="box-sizing: border-box;">群众基础广泛，应考虑将村庄规划成果</span><span style="box-sizing: border-box;">内容和政策法规要求充分纳入其中，同</span><span style="box-sizing: border-box;">时结合本村特色和优势，形成村民看得</span><span style="box-sizing: border-box;">上、用得上的治理依据。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/8ORUa9yKVt4UpYVIEmVcpvQREGaekIdiafORa774Ymyf39ERibY0Whwnd8ef2KqibC19eAkKM4RPkk7Oic1523C56A/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);font-size: 19px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">三</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">广州市村庄规划与村规民约衔接</strong><strong style="box-sizing: border-box;">的试点探索</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(132, 81, 21);padding: 10px;border-radius: 0px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">基于上述研究，为更加有效地指导<span style="box-sizing: border-box;">广州市乡村地区的建设发展，研究选取</span><span style="box-sizing: border-box;">已编制村庄规划的迳下村和未编制村庄</span><span style="box-sizing: border-box;">规划的下围村的村规民约进行试点优化</span><span style="box-sizing: border-box;">探索。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（一）已编制村庄规划的村庄试点——迳下村</p></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">1.选取迳下村作为优化试点的原因</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">选取迳下村作为试点村主要是为了解<span style="box-sizing: border-box;">决广州市乡村地区的共性问题——合法使</span><span style="box-sizing: border-box;">用土地但用地手续不全而导致的报建困</span><span style="box-sizing: border-box;">难问题，为日后在广州市乡村地区广泛</span><span style="box-sizing: border-box;">推行试点经验提供参照和借鉴。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">2.迳下村建设治理概况</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">迳下村位于九龙镇东北边缘地带，<span style="box-sizing: border-box;">村庄建设用地有10余公顷，户籍人口为</span><span style="box-sizing: border-box;">1070人，常住人口为700人。迳下村村</span><span style="box-sizing: border-box;">庄治理存在三方面问题：一是村规民约</span><span style="box-sizing: border-box;">内容和形式严重滞后。其村规民约编制</span><span style="box-sizing: border-box;">于2000 年，以概括性的条文内容为主，</span><span style="box-sizing: border-box;">缺乏实质性的细则内容，不符合当前乡</span><span style="box-sizing: border-box;">村治理需要。二是村庄规划实用性不强，</span><span style="box-sizing: border-box;">根据村委会访谈与问卷调查结果显示，</span><span style="box-sizing: border-box;">村民普遍认为其村庄规划难以有效指导</span><span style="box-sizing: border-box;">村庄建设工作，主要是因为规划冲突及</span><span style="box-sizing: border-box;">村民、村委会对规划了解的局限等问题。</span><span style="box-sizing: border-box;">三是报建困难问题，由于诸多历史遗留</span><span style="box-sizing: border-box;">问题的制约，大部分村民住宅权属存在</span><span style="box-sizing: border-box;">不明确性。据统计，迳下村仅有10户村</span><span style="box-sizing: border-box;">民持有宅基地证，其余村民均无土地使</span><span style="box-sizing: border-box;">用证明文件。由于报建资料不全，迳下</span><span style="box-sizing: border-box;">村村民在个人非公寓式住宅报建过程中</span><span style="box-sizing: border-box;">遇到困难。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">3.迳下村村规民约优化调整说明</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">针对迳下村建设治理的问题与难点，<span style="box-sizing: border-box;">主要从三方面优化《迳下村村规民约》：</span><span style="box-sizing: border-box;">一是根据《国土资源部关于进一步加快</span><span style="box-sizing: border-box;">宅基地和集体建设用地确权登记发证有</span><span style="box-sizing: border-box;">关问题的通知》精神，将没有土地权属</span><span style="box-sizing: border-box;">来源材料的宅基地确权登记程序与村民</span><span style="box-sizing: border-box;">报建程序相结合，并纳入《迳下村村规</span><span style="box-sizing: border-box;">民约》，以解决村民报建过程中的权属</span><span style="box-sizing: border-box;">问题；二是推动村规民约自我完善、规</span><span style="box-sizing: border-box;">范提法和表述，同时在村规民约中补充</span><span style="box-sizing: border-box;">关于乡村建设治理的内容；三是将迳下</span><span style="box-sizing: border-box;">村村庄居民点规划、新村建设规划、道</span><span style="box-sizing: border-box;">路交通规划、三大设施规划、村庄整治</span><span style="box-sizing: border-box;">规划和近期建设行动计划等内容纳入村</span><span style="box-sizing: border-box;">规民约(表2)。同时，通过三字经、海</span><span style="box-sizing: border-box;">报等多种形式加强对村庄规划与村规民约</span><span style="box-sizing: border-box;">的宣传力度，强化村民的规划意识(图3)。</span></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.4898148" data-w="1080" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miab1AtpanCYiaNm4rDh9hvvSaiaU2GgBibTPcIfOE1zhd1dFy6Hb0m6OPIic6M5QKicTqJSuZW6KV9JianQ/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.5388889" data-w="1080" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miab1AtpanCYiaNm4rDh9hvvS5W1lcHTdygUZCNic2ibnIN2naRvssyH42BeAPAB2pbnxRBssibdFsnqFQ/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: left;transform: translate3d(0px, 0px, 0px);box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(156, 94, 21);color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">（二）未编制村庄规划的村庄试点——下围村</p></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">1.选取下围村作为优化试点的原因</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">选取下围村作为试点村主要是为了<span style="box-sizing: border-box;">解决未编制村庄规划的村庄难以开展村</span><span style="box-sizing: border-box;">庄建设的问题，结合下围村村民议事制</span><span style="box-sizing: border-box;">度，探索并积累成功经验，为日后广泛</span><span style="box-sizing: border-box;">推行提供参照和借鉴。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">2.下围村建设治理概况</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">下围村位于石滩镇东南端，村庄总<span style="box-sizing: border-box;">用地面积约为4.0km2，共9个合作社，</span><span style="box-sizing: border-box;">户籍人口约为2200人，外来人口约为</span><span style="box-sizing: border-box;">1300人。下围村是通过民主议事制度成</span><span style="box-sizing: border-box;">功改变村庄面貌，并实现村民有效自治</span><span style="box-sizing: border-box;">的村庄。在乡村建设管理过程中，下围</span><span style="box-sizing: border-box;">村实行“一事一议”的议事制度，有效</span><span style="box-sizing: border-box;">解决了村庄建设管理过程遇到的各种难</span><span style="box-sizing: border-box;">题。除此之外，其成功经验还包括实施</span><span style="box-sizing: border-box;">了“一村一法律顾问”，以此为村民提</span><span style="box-sizing: border-box;">供法律服务；创建了下围村委会公众号，</span><span style="box-sizing: border-box;">政务全部公开；建立了村民和报建员共</span><span style="box-sizing: border-box;">同负责报建，后期由报建员跟进核查，“两</span><span style="box-sizing: border-box;">违”巡查队自愿审查的制度；设立了惩</span><span style="box-sizing: border-box;">处措施，对于违建和违反村规民约的行</span><span style="box-sizing: border-box;">为，给予扣除分红的处分，并移交城管</span><span style="box-sizing: border-box;">部门处理。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">然而，由于下围村未编制村庄规划，<span style="box-sizing: border-box;">导致村庄建设缺乏新增建设用地指标，</span><span style="box-sizing: border-box;">严重制约着村庄建设工作的开展。</span></p></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="width: 40px;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section><section style="padding-left: 8px;padding-right: 8px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">3.下围村村规民约优化调整说明</p></section><section style="width: 40px;text-align: right;margin-left: auto;height: 5px;line-height: 5px;box-sizing: border-box;"><section style="display: inline-block;vertical-align: middle;width: 30px;border-top: 1px solid rgb(132, 81, 21);border-right-color: rgb(132, 81, 21);border-bottom-color: rgb(132, 81, 21);border-left-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 5px;height: 5px;border-radius: 50%;display: inline-block;vertical-align: middle;background-color: rgb(132, 81, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section></section><section style="letter-spacing: 1px;padding: 0px 4px;box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;">针对下围村建设治理难点，通过划</span><span style="box-sizing: border-box;">定村庄居民点管控边界的办法进行管理，</span><span style="box-sizing: border-box;">由区、镇街根据现行的土地利用总体规</span><span style="box-sizing: border-box;">划、城市总体规划等上位规划及下围村</span><span style="box-sizing: border-box;">的建设现状，划定下围村村庄建设用地</span><span style="box-sizing: border-box;">管理界线，并作为村庄建设的依据。同时，</span><span style="box-sizing: border-box;">完善农房建设相关内容及规范表述提法</span><span style="box-sizing: border-box;">(表3)。</span></p></section><section style="text-align: center;margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.6018519" data-w="1080" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0miab1AtpanCYiaNm4rDh9hvvSnaPJxuGhwATBcxMqHTaiaDrqUcWo1ian2CeibXSbAmpO4YNDNog4mOnOA/640?wx_fmt=png" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="png"  /></section></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/8ORUa9yKVt4UpYVIEmVcpvQREGaekIdiafORa774Ymyf39ERibY0Whwnd8ef2KqibC19eAkKM4RPkk7Oic1523C56A/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="border-bottom: 1px solid rgb(156, 94, 21);display: inline-block;font-size: 18px;padding: 0px 5px;line-height: 1;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">四</strong></p></section><section style="background-color: rgb(156, 94, 21);display: inline-block;font-size: 18px;line-height: 1;padding: 5px 5px 1px;color: rgb(255, 255, 255);box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"> 结语</strong></p></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 2px 1px 1px;border-style: dashed none none;border-color: rgb(44, 90, 160);padding: 0px;background-color: rgb(229, 240, 247);border-radius: 0px;box-sizing: border-box;"><section style="display: inline-block;width: 100%;vertical-align: top;letter-spacing: 0px;padding: 15px 10px 0px;box-sizing: border-box;" powered-by="gulangu"><section style="text-align: justify;font-size: 15px;line-height: 1.8;padding: 0px 5px;color: rgb(62, 62, 62);box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">村庄作为一种有别于城镇的生活聚<span style="letter-spacing: 0px;box-sizing: border-box;">落，由于其空间的复杂性和地域的差异</span><span style="letter-spacing: 0px;box-sizing: border-box;">性，导致村庄规划在村庄治理过程中难</span><span style="letter-spacing: 0px;box-sizing: border-box;">以充分发挥作用，急需村规民约作为制</span><span style="letter-spacing: 0px;box-sizing: border-box;">度支撑和补充。基于自治视角，笔者认</span><span style="letter-spacing: 0px;box-sizing: border-box;">为村庄规划与村规民约共同治理村庄应</span><span style="letter-spacing: 0px;box-sizing: border-box;">当注重以下三方面内容：首先，在建设</span><span style="letter-spacing: 0px;box-sizing: border-box;">治理内容方面应当保持一致性，这是村</span><span style="letter-spacing: 0px;box-sizing: border-box;">庄规划与村规民约联动治理的先决条件；</span><span style="letter-spacing: 0px;box-sizing: border-box;">其次，在表达成果方面，应该简明扼要，</span><span style="letter-spacing: 0px;box-sizing: border-box;">让村民充分理解和认识到村庄规划、村</span><span style="letter-spacing: 0px;box-sizing: border-box;">规民约的内涵和重要作用；最后，在治</span><span style="letter-spacing: 0px;box-sizing: border-box;">理管理方面，应明确各方主体责权、激</span><span style="letter-spacing: 0px;box-sizing: border-box;">发村民积极性，形成集政府、村民及社</span><span style="letter-spacing: 0px;box-sizing: border-box;">会组织机构“三位一体”的治理模式。</span></p></section></section><section style="margin: 0px 0%;text-align: right;line-height: 1;font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 0px;display: inline-block;vertical-align: top;border-bottom: 0.6em solid rgb(255, 255, 255);border-right: 0.6em solid rgb(255, 255, 255);box-sizing: border-box;line-height: 0;border-top: 0.6em solid transparent !important;border-left: 0.6em solid transparent !important;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" 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0px;padding: 0px;box-sizing: border-box;">来源：2019年24期《规划师》杂志</p></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="background-color: rgb(32, 84, 156);height: 1px;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">新媒体编辑：刘晓莹</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">审读：刘芳</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 0px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 0px 1.5em;margin-bottom: -35px;box-sizing: border-box;"><section style="padding: 10px;width: 100%;display: inline-block;background-color: rgb(156, 94, 21);box-sizing: border-box;"><section style="text-align: center;color: rgb(255, 255, 255);font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">文章全文详见《规划师》2019年24期</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">《村庄自治视角下村庄规划与村规民约的衔接研究——以广州市乡村地区为例》</p></section></section></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;font-size: 0px;box-sizing: border-box;"><section style="margin-left: 24px;border-bottom: 1px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="float: left;margin-top: -1px;box-sizing: border-box;background-color: rgb(255, 255, 254) !important;"><section style="width: 0px;height: 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0px;height: 8px;border-right: 1px solid rgb(156, 94, 21);margin-right: 8px;box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 16px;margin-top: -1px;box-sizing: border-box;"><section style="width: 16px;height: 8px;border-right: 1px solid rgb(156, 94, 21);border-left: 1px solid rgb(156, 94, 21);border-bottom: 1px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 8px;height: 16px;margin-top: -8px;margin-left: 8px;border-left: 1px solid rgb(156, 94, 21);border-bottom: 1px solid rgb(156, 94, 21);border-top: 1px solid rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="width: 8px;height: 16px;margin-top: -1px;margin-left: 16px;border-top: 1px solid rgb(156, 94, 21);border-right: 1px solid rgb(156, 94, 21);border-left-color: rgb(156, 94, 21);box-sizing: border-box;line-height: 0;"><br  /></section></section></section><section style="clear: both;box-sizing: 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