层级自治:行动者的缺席与回归——多中心治理视野下的城市基层治理研究

Multilevel Autonomy: Absence and Return of Actors—A Study on City Grass-Roots Governance from the Perspective of Polycentric Governance

城市基层治理的基本形态就是由不同层级的行动者所创造的基层自治体系。伴随着社会结构的转型,城市基层自治的行动者正在经历着从缺席向回归的转移。城市基层自治体系中的行动者是由楼组、社团性组织(自治家园)、业委会、居委会等组成的。不同层级的自治所解决的议题是不同的。楼组自治、自治家园和业委会自治有其特定的局限性和治理限度。以居委会为载体的自治平台是城市治理乃至国家治理的基石。以多中心治理理论为视角,基于对城市基层治理的经验总结以及基层治理的主体递进逻辑和物权逻辑,提出中国城市基层治理的"层级自治模式",唤醒基层治理中的行动者,实现行动者的回归,推动城市基层治理的善治。

The basic form of city grass-roots governance is grass-roots autonomous system, developed by actors at different levels. With the transformation of social structure, actors are experiencing the role transformation from absence to return. In general, they are composed of building groups, community organizations （autonomous homeland）, owner＇s committees, neighborhood committees, etc. in the grass-roots autonomous system. Issues involved are different in autonomy at different levels. As a matter of fact, there are certain governance limitations in the autonomy of building groups, homeland and owner＇s committees. Therefore, it is proposed in this paper that the autonomous platform via neighborhood committees is the cornerstone of city governance and the governance of the state. Based on the experience of city grass-roots governance and progressive logic of grassroots governance subjects and property logic, the paper puts forward the concept of ＂multilevel autonomy model＂ in the city grass-roots governance from the perspective of polycentric governance theory, which aims to awaken actors and enable them to return in the city grass-roots governance, thus promotes a good city grass-roots governance.