从发展到治理:基层乡镇政权的职能转向及其实践——基于上海市郊区秦镇的实证分析

From Development to Governance:Functional Shift and Practice of Grass-roots Township Regime

社会转型所带来的治理性风险以及在城乡之间的转移,导致郊区乡镇产生从经济发展到社会治理的职能转向,且形成了"无发展的治理"模式。在此过程中,为了增强郊区乡镇的社会治理能力,县区政府将部分执法部门下沉到基层乡镇,乡镇的部门职能得到调整,村居社区的功能也得到再次界定。然而,"无发展的治理"的实质是在新时期的城乡一体化关系背景中对郊区乡镇与中心城区功能的重新定位。这种以城市为本位的郊区社会治理形式,包含着郊区乡镇在经济发展与社会治理之间的张力。

The governance risks brought about by social transformation and the transfer between urban and rural areas have led to the functional shift from economic development to social governance in suburban towns,and formed the mode of"non-development governance".In this process,in order to enhance the ability of social governance in suburban towns,the county and district governments have distributed part of the law enforcement departments to the grass-roots towns,the functions of the township departments have been adjusted,and the functions of the village community have been redefined.However,the essence of"governance without development"is to renew the functions of suburban towns and central urban areas in the context of urban-rural integration in the new era.This form of city-based suburban social governance fully presents the strain between the economic development and social governance of suburban towns.