新中国成立初期我国城市管理体制的建立及其层级结构研究

Establishment of China's Urban Management System and Its Hierarchical Structure in the Early Years of People's Republic of China

当代中国城市管理体制呈现出层级多、基层负担重等特征.目前主流观点认为这与中国城市管辖范围大、人口多、传统官僚制等有关.但回溯这一体制建立之初可以发现,中国共产党是在1949年前后接管城市过程中,面对同一城市,放弃了之前的一级政府体制,建立了二级政府加街居的"四级"管理新体制,当时已然呈现出机构多、人员多,基层不堪重负等形态.本文应用档案等史料,聚焦于这一城市新管理体制建立的实际过程,并应用国家政权建设理论,从政府角色、职能与结构角度解释了新管理体制的特征及其构建的合理性.中国共产党在国家政权建设过程中,把改造和重组社会作为自身的使命,带来了城市政府职能的扩张.而伴随旧的社会组织的清除,城市政府只能依靠自身的组织体系来实现职能,同时面对广大群众,工作不得不深入推行下去,进而选择不断地下设组织层级,形成了多层级的城市管理体制.

The contemporary Chinese urban management system shows the characteristics of many levels and the grassroots government is heavily burdened.At present,the mainstream view believes that this is related to the large jurisdiction,large population,and traditional bureaucracy of Chinese cities.But when we return to the establishment of this system,we can find,during the process the Communist Party of China took over city around 1949,it abandoned the“first-level”government system before liberation,and established a“four-level”management system,including two-level government plus street office and residents committee.The New System has already shown that there are many institutions,many managers,and the grassroots are overwhelmed.This paper uses historical materials such as archives,focus on the actual process of establishing a new management system in this city,and explains the characteristics of the new management system and the rationality of its construction from the perspective of state power construction and the role of government,functions and structures.In the process of state power construction,the Chinese Communist Party has taken the transformation and reorganization of society as its mission,which has brought about the expansion of the functions of city governments.With the removal of the old social organization,the city government can only rely on its own organizational system to achieve its functions,at the same time,facing the masses,the work has to be carried out in depth,and then choose to continue to set down the organizational level,resulting in a multilevel City management system.