从全面管控到依法治理:新中国成立70年来城市基层治理的演进——以城管部门为研究对象

From Overall Control to Governance by Law: Evolution of Urban Grass-Roots Governance in the 70 Years Since the Founding of New China——Taking Chengguan Department as Research Object

新中国成立70年以来,我国城市基层治理可以根据治理主体和治理方式的不同划分为三个阶段。从新中国成立到20世纪80年代改革开放实施之前为第一阶段,因国家在城市中实行以单位制为主的管理方式,单位构成城市基层的治理主体,通过政治、经济、文化等方面对城市基层进行全面管控。从20世纪80年代到21世纪初为第二阶段,在改革的背景下,国家对社会的管控放松,单位制解体,街道与社区却难以完全承接原单位的功能,国家相关治理部门直接面对原子化的个人并成为治理主体。面对大量治理需求,国家成立独立的城管部门,但由于法规和监督约束机制不健全,暴力执法等非正规治理问题频发。进入21世纪后为第三阶段,随着社会法制意识和监督方式的增加,社会约束力不断增强,同时,国家以和谐社会和依法治国的目标来维护社会稳定,使基层治理人员的行为受到社会和国家的双重约束,城市基层治理迈入依法治理的阶段,逐步实现了从全面管控到依法治理的历史演进。

Since the founding of New China 70 years ago,urban grass-roots governance in China can be divided into three stages according to different governance subjects and governance modes.From the founding of New China to the implementation of the reform and opening up in the 1980s,units constituted the main governance subject in the urban grassroots,and the state controled the urban grassroots society through political,economical and cultural aspects.From the 1980s to the beginning of the 21st century,as the second stage,against the background of reform,the state relaxed the way of social control and disintegrated the unit system.Faced with a large number of new governance needs,independent urban management departments were established.However,due to the imperfect laws,regulations,supervision and restraint mechanism,violent law enforcement and other informal governance were frequently happen.Entering the 21st century,with the increasing social constraints and the national goal of govern the country by law,behavior of grass-roots managers were restrained by both society and the state,and entered the stage of governance by law,thus gradually realizing the historical evolution from comprehensive control to governance by law.