同构视阈下的异构治理:市辖区体制的优化进路

“Isomerism” Governance from the Perspective of “Responsibility Isomorphism”:The Optimization Approach of Municipal District System

市辖区是现代城市治理的重要政区,其在城市基础性管理和公共服务供给方面发挥了重要作用。市辖区是现代市制的产物,受政策主观性和要素客观性的双重影响。基于我国市制变迁背景,改革开放以来的市辖区体制发展可以归纳为四个阶段:非规律变动期(1949—1982)、数量增长期(1983—2003)、平稳控制期(2004—2013)、规模拓展期(2014至今)。市辖区体制的这四个时期并非是自发产生的,而是根据市制的客观发展和主观调控形成的,并具有前后衔接的波动性,形成了当前市辖区体制的基本形态。同时,在职责同构化的政府过程中,城市发展的非均衡性使市辖区在分配发展资源时出现了明显的差异性,进而引发市辖区体制的职责偏差。在同构化治理的背景下,市辖区体制出现设置高度"同构化"、调整自主性偏弱和城市治理"模糊化"等难点,引发城市治理现代化的障碍。在充分考量"职责同构"发生的必然性和合理性的基础上,尝试以"异构"治理作为市辖区体制优化的理念创新,即在"同构"的现实中以"异构"治理为视角创新市辖区体制的优化理念。基于此,分别从政区治理的适域化、治理单元的多维化和区际治理的协同化三个方面出发,探索市辖区"异构"治理的实践策略。

Municipal district is an important administrative area of modern urban governance, which plays an important role in urban basic management and public service supply. Municipal district is the product of modern city system, which is fluctuating with the change of city system. On the basis of fully considering the inevitability and rationality of the occurrence of “isomorphism of responsibilities”, this paper attempts to take “isomerism” governance as the idea transformation of the optimization of the municipal district system,that is, in the reality of “isomorphism”, innovate the optimization idea of the municipal district system from the perspective of “isomerism” governance.Based on this, this paper explores the practical approach of “heterogeneous” governance in municipal districts from three aspects: the regionalization of district governance, the multidimensional of governance units and the coordination of inter district governance.