在监管中吸纳:官办社团参与城市管理的系统分析——以A市城市管理义务工作者组织为例

Inclusion through Regulation: A Systematic Analysis of Participation in Urban Management by Government-run Groups——A Case Study Based on Volunteer Works in Urban Management from City A

针对当代中国城市管理过程中出现的吸纳型监管模式,可以从政治系统论视角进行分析。从输入、输出和反馈的过程来看,吸纳型监管不同于西方自由竞争式的监管内涵,它来源于作为执行输出端的政府职能的折冲,服务于作为支持输入端的政府信任提升,体现出政府存在的需求输入及反馈社会的输出性结果。从监管型国家建设目标来看,以城管执法和官办社团开展的城市吸纳型监管新模式,不等同于社会力量参与治理,难以达到提升监管合法性和有效性的目标。其根源是在城市管理存在政治争议而未经利益博弈的情况下,行政机构的主观性监管很难在管理效率和政治正确之间取得平衡。在此情况下,必须在前端和其他环节嵌入公共参与和公共协商机制,构建协商治理平台,增强政府公共管理活动的政治基础。

Why is it necessary to incorporate the participation by government-run groups in the process of urban man- agement in a strong regulatory situation？ This article offers a detailed interpretation of the modes of inclusive regulation from the perspective of political system theory in contemporary Chinese urban management. By reviewing the processes of input, output and feedback, we can find that the inclusive regulation is different from the western mode of regulation with free com- petition. The inclusive regulation originates from the modification of government functions as the output end, serves the ele- vation of government credibility at the input end, and reflects the demand input of government presence and the output re- sult as a feedback to the society. From the perspective of building objectives in a regulatory country, the new mode of inclu- sive regulation implemented in the form of law enforcement agencies in urban management and government-run groups dif- fers from the participation by social forces, and meets difficulty in achieving the goals of increasing the legitimacy and effec- tiveness of regulation. The root cause is that under the circumstances where the political controversy fails to receive the test of interests game in urban management, the subjective regulation of administrative agencies can hardly strike a balance be- tween administrative efficiency and political correctness. In this case, it is imperative to imbed public participation and public consultation mechanism in the front and other segments, so as to build a platform for consultation and to reinforce the political foundation for public management activities by the government.