中国城乡社区政策的演进图景与深层反思——基于1987—2020年国家层面政策文本的混合分析

The Evolutionary Picture and Deep Reflection of Urban and Rural Community Policies in China——Based on a Mixed Analysis of National Policy Texts from 1987 to 2020

[目的/意义]社区是社会治理和民生保障的重要载体。作为社区政策的落实对象与操作单元,城乡社区能否高质量发展主要取决于政策因素。揭示我国社区政策的发展脉络与演进特征,对进一步完善城乡社区治理具有重要意义。[方法/过程]本文以1987—2020年国家层面颁布实施的246篇与社区发展密切相关的政策文本为研究对象,综合运用文献计量法和内容分析法,构建包括政策外在结构特征和政策内部语义特征在内的社区政策二维分析框架,以期厘清和科学判断三十余年来我国社区政策的基本走向。[结果/结论]研究发现,我国社区政策发展大致经历了萌芽起步、快速上升和波动增长3个阶段。民政部和国家卫生健康委员会是核心发文部门,部门合作网络初步形成,城乡社区融合趋势在社区政策中得以体现,复合型社区组织架构日臻完善,社区治理各项工作协同推进,混合性政策工具为社区政策常用工具。在此基础上,本文从完善社区立法、加强部门合作、统筹城乡社区、打造复合组织、优化政策工具等方面提出政策建议。

[Purpose/significance]Communities are important carriers of social governance and livelihood protection.As the implementation object and operational unit of community policies,whether urban and rural communities can develop with high quality depends largely on policy factors,and it is important to reveal the development lineage and evolutionary characteristics of community policies in China to further improve urban and rural community governance.[Method/process]The 246 policy texts closely related to community development promulgated and implemented at the national level from 1987 to 2020 are used as the objects of analysis,and the bibliometric and content analysis methods are used to construct a two-dimensional analysis framework of community policies,including the external structural characteristics of policies and the internal semantic characteristics of policies,in order to clarify and scientifically judge the basic direction of China’s community policies in the past three decades.[Result/conclusion]The study finds that the development of community policy in China has roughly gone through three stages:nascent start,rapid rise and fluctuating growth.The Ministry of Civil Affairs and the National Health and Wellness Commission are the core issuing departments,the initial formation of the departmental cooperation network,the trend of urban-rural community integration is reflected in community policy,the composite community organization structure is increasingly improved,and various community construction efforts are promoted in a coordinated manner,and hybrid policy tools are the common tools of community policy.On this basis,policy suggestions are put forward in terms of improving community legislation,strengthening departmental cooperation,integrating urban and rural communities,building a composite organization,and optimizing policy tools.