From Fragmented Villages to Territorial Development Communities: A Comparative Analysis of Party-Led Coordination and Inter-Village Organization in Zhejiang, China

Abstract

Administrative villages are still the basic units of collective ownership and grassroots governance in rural China. However, many development challenges now go beyond village boundaries. Tourism, ecological resources, agricultural brands, infrastructure, and public services often require cooperation across villages. This article examines how Party-based coordination helps fragmented villages build a territorial development community without changing administrative boundaries. It compares three village clusters in Zhejiang Province: Yushang Rice Country in Yuhang, Jiangnan Xiwang Valley in Linhai, and Badujie in Changxing. Using policy documents, local case materials, government webpages, public reports, and international literature, the study identifies four mechanisms: functional territorialization, coordination between political organizations and operating actors, benefit feedback, and the social use of economic gains. The findings suggest that Party organizations mainly provide coordination support by connecting villages, identifying common issues, and linking local actors with external resources. However, coordination itself does not guarantee successful development. It needs to work with effective operating organizations and clear arrangements for property, risks, benefits, and participation. Evidence of turning economic gains into broader social benefits remains limited. Therefore, this article views Party leadership as a conditional mechanism rather than a sufficient cause of development.