“扩”与“缩”的共进:变革社会中社区治理单元的重构——以杭州市江干区“省级社区治理与公共服务创新试验区”为例

Rebuilding Community Governance Unit in a Transforming Society:The Coexistence of “Enlarging” and “Narrowing” Approaches Exemplified by the Practice of Jianggan District in Hangzhou

中国数十年社区建设有两条基本的路径(逻辑),一条是政党-国家(政府)中心论,另一条是社会-居民中心论。这两个路径造成社区治理过程中普遍存在的两个困顿。第一是社区居委会行政化之愈来愈彻底,或者日益被边缘化。第二是作为共同体的社区变成了行政区,居民参与度依然较低,认同程度低,形成了"夹生人"社会。因此,如何解决,或者是找出一个平衡点或突破口就显得相当重要了,现实迫使人们不得不把眼光转到治理单元的创新上来,各地做了不少探索。本文旨在展示出在已有的框架下杭州市江干区在社区治理与公共服务的实验过程中如何在两个看似反向的维度上同时进行创建以推进社区治理的水平。杭州市江干区通过一扩一缩(一大一小),扩的方面是建立"联合社区",推行"大社区制",旨在强化国家(政府)对基层社会的有效管理,缩的方面是建立"邻里坊",旨在推进自治与居民的参与,对社区治理单元进行修缮性的重构,由此提升社区治理的水平。

There are two different approaches to community building in China for decades. One is administrative and characterized by Party-state ( government ) centralism, and the other is society centralism featuring self-governance and people’s participation. These approaches have caused two major problems in community governance. Firstly, the community residents’ committees are increasingly becoming governmentlike organs or more and more marginalized. Secondly, the community as a Gemeinschaft has become an administrative district, which depressed the resident’ sense of identity and their motivation for participation, forming a society of“ strangers”. In order to solve these problems, it is important to find a balance point or breakthrough point to overcome the conflicts between these two approaches. Reality forces us to turn our attention to the innovations in redefining the governance unit explored by many areas. To promote such a redefinition, this article aims to demonstrate an innovation of this type made by Jianggan District of Hangzhou City, which applies a double-track mode of governance in the existing framework adopted by the community governance and public service experimental areas. One track ( in a top-down manner ) is to strengthen the control and penetration of the state by building bigger communities and implementing a“ bigger community system”, and the other one ( in a bottom-up manner ) is to advance self-governance and residents’ participation by establishing neighborhood workshops. These two tracks work together to help restructure the governance unit and improve the community governance.