广州地方行政机构和城市管理部门演变史研究

A Historical Study on the Evolution of Local Administrative and Urban Management Agencies in Guangzhou

为完善广州城市管理机构演变历史,探讨城市的特质及城市治理的内涵;通过研究不同历史阶段中广州的城市发展以及城市职能的转变,分析地方行政机构与城市管理机构的关系,梳理广州城市管理机构的演变历史;发现广州城市管理机构具有两个源头,其一是在地方行政机构中随着城市管理的需求而在部门职能基础上的拓展而演化;其二是受西方市政制度的影响组建的广州市政厅,先进城市化国家是城市发展带动城市管理机构的变化,后发国家则是通过建立城市管理机构而促进城市发展,广州的市政机构发展提供了这一例证,广州的主要职能从统治区域的城堡转型为商贸服务中心的城市,从古代城堡向近代城市转型的标志性事件是组建了市政厅;近代广州的发展很大程度上得益于市政机构、规划管理机构的发展,城市管理机构的职能与角色是决定城市发展的内在关键因素。

As the first municipal city in modern China,Guangzhou’s urban management permeates the influence of western technology and concept systems and follows the history of urban administrative development over more than 2000 years.In order to perfect the evolutionary history of urban management,the characteristics of the city and the connotation of urban governance are explored to reveal the western social factors of the formation of public regulation and the function of public service in modern Guangzhou.By studying the urban development of Guangzhou and the transformation of urban functions in different historical stages,this paper analyzes the relationship between local administrative and urban management agencies.This study also combs the official system,functional scope and evolution of administrative agencies related to urban management since the Qin Dynasty and the early Republic of China.Finally,it compares the differences in functions and roles of the City Hall between Guangzhou and western society.The study found that the local administrative and urban management agencies in Guangzhou have undergone three changes,starting from the occupation and ruling functions of the Qin Dynasty to the police agency of the late Qing Dynasty that established public control and the establishment of the municipal system in the Republic of China that enhanced public service and the construction of Guangzhou city.The core change in Guangzhou from an ancient to a modern city was the organization of the urban form,including the roles and functions of urban management,with the most fundamental change being from control to service.The urban management agency of Guangzhou was also found to have two sources.One was the evolution of the local administration with the demand on urban management based on departmental functions.The second was the Guangzhou City Hall,influenced by the western municipal system.Guangzhou City Hall was established as the first independent city government in modern China so that urban construction management could break through the county’s constraints.The establishment of Municipal Council,an important part of the city hall,marks when Guangzhou began to have an independent agency for urban planning management,making the planning management agencies independent from the urban management and greatly accelerating urbanization and modernization.An advanced and urbanized country drives urban management agency by urban development,and the latter country promotes urban development by establishing an urban management agency.This is demonstrated by the development of the Guangzhou municipal agency.The main function of Guangzhou is to transform from the ruling area castle to a business service city centre.The iconic event for this transition from ancient castle to the modern city is forming a city hall.The municipal hall is the main body of public control,public services,and the integration of local development in Guangzhou.Guangzhou completely removed the control of countylevel local governments under the traditional administrative system of urban and rural governance and promoted modernization.Therefore,the urban management agency is the carrier of the organizational structure behind the urban form.The development of Guangzhou in modern times was largely due to the development of the municipal,planning and management agencies.The function and role of urban management agencies are the internal key drivers of urban development.Contemporary urban development begins to change with the service type,and the relationship between regulation and services promote further developmental changes.Therefore,it is necessary to clarify the boundary of urban government regulation and deal with the relationship between regulation and public service.