突破“碎片化”:构建“回应性”城市政府协同治理框架——基于杭州上城区“平安365”的案例分析

Breaking Through “Fragmentation” Through Constructing a Responsive Framework for Collaborative Governance among Urban Government:A Case Study of “Safe 365”in Shangcheng District,Hangzhou

近20多年来我国城镇化的迅猛发展,受到城市扩张与更新、人口流动性、社会利益调整、信息网络扩散、公众生活方式改变等因素影响,城市政府治理面临双重挑战:城市生活空间不断出现新的社会问题,且问题具有跨界性、流动性、弥散性、相互关联性等复杂特征;原有"条块分割"的政府组织结构设计各自为政、职能交叉与缺位并存、"碎片化"治理,应对变动不居的复杂社会问题的能力明显不足,威胁到地方政府治理绩效。为此,我国地方政府治理实践兴起一股以技术整合为思路的协同治理创新潮流,以此改革选项联动政府以及多元治理主体建立跨部门、跨界的合作机制,齐抓共管,协力合作,通过塑造"整体性"治理架构,有效回应城市存在的突出社会问题。本文以杭州市上城区实施的"平安365"协同治理为个案,系统描述这一以技术整合为思路的协同治理机制是如何运转起来的,并分析其生成与运行逻辑。城市政府协同治理的生成是城市场域性质变化和科层化行政绩效驱动双重作用的结果。技术整合协同治理机制的生成,是城市政府在"条块"体制下一种理性的工具选择。同时,在缺乏体制深度调整和理顺情况下,依靠"问题处置"为导向的渐进式技术或机制整合路径能否持续、有效地"嵌入"地方治理结构,能否带来变革性的治理创新,是需要进一步观察与思考的问题。

With the rapid development of urbanization in China over the past 20 years,and the influence of urban expansion and renewal,population mobility,adjustment of social interests,information diffusion and changes in lifestyle,urban governance is now facing double challenges: new social problems with complex features arise constantly; the original government structure featured as departmental and regional barriers,overlapping functions and fragmentized governance is clearly not able to deal with complex social problems,which threatens local governance performance. For this reason,a new wave of collaborative governance innovation based on technology integration appears,which is expected to promote government and multiple governance bodies to establish cross-boundary collaboration mechanism,thus effectively solving serious social problems through holistic governance. This article studies the case of "safe 365"collaborative governance in Shangcheng District,Hangzhou. It describes how the collaborative governance mechanism based on technology integration works and conducts logical analysis of its generation and operation. The generation of collaborative governance among urban government is the result of the change in the nature of urban field and the drive from hierarchical administrative performance. Collaborative governance based on technology integration is a rational choice of urban government under the traditional system. Meanwhile,it needs further observation whether incremental technology integration oriented toward problem solving will be effectively and continuously embedded in local governance structure and will bring about transformative governance innovation.