“非对称权责”结构与社区属地化管理

Asymmetric Power and Responsibility Structure and Localized Management in Community

本文以社区安全监管工作为研究对象,讨论基层社区在属地化管理中的运行机制。属地化管理是中国地方治理的基本框架。但是,与一般的组织不同,中国地方的属地化管理具有权责不对称的结构性特点,而且,越到基层权责不对称程度越高。作为最底层的公共治理单元,社区在属地管理中具有重要意义,但权小责大的结构性特点让社区在属地化管理中面临尴尬处境。比如,在安全监管中,一方面,社区面临自上而下的责任压力;但另一方面,由于权力缺失和资源不足,导致社区在安全监管中难有作为。在此情形下,社区对安全监管的政策执行结果出现多样化的特征。同时,属地管理的方式情境化,会采用人情关系、合作交换、权威借用等方式开展工作。对社区属地化管理的研究,是理解中国地方治理和社区运行的重要主题。

This paper focuses on the supervision of community safety and discusses the grassroots communities’operational mechanisms in localized management.Localized management is the basic framework of local governance in China.However,unlike other general organizations,localized management in China has a structural feature of asymmetric power and responsibility.More importantly,the lower the rank of the government is,the more asymmetric it is between the power and responsibility of the community government.As the lowest level of public governance unit,the grassroots community plays an important role in the localized management,but the structural feature of"little power,big responsibility"puts the grassroots community in an awkward and difficult situation.For example,in the safety supervision,on the one hand,the community faces the top-down pressure;on the other hand,due to the lack of power and resources,the community finds it hard to effectively supervise.As a result,community safety supervision showed diversified characteristics during policy implementation.Meanwhile,the communities would adopt a situational way to practice the localized management:they use human relations,cooperation and exchange,authority borrowing and other ways to achieve their goals.The study of localized community management is an important aspect of understanding local governance and community operation in China.