城市基层治理的历史传统与现代化进程

Historical Tradition and Modernization of Urban Primary Governance in China

中国的基层治理有着独特的含义,基层是一个“基层政权与社会”的综合体,基层治理是综合了“基层政权建设”与“基层社会治理”的过程。中国自很早时代始,国家即将基层社会纳入治理范畴,形成一种“下为上基、社为国基、以国统社”的认知。新中国成立后,旧的“统治性”基层组织被取代,改革开放以来,城市基层治理基本发生在“街居”组织体系中。进入新时代后,“构建简约高效的基层管理体制、建设社会治理共同体”分别对应基层治理的“政权建设”与“社会治理”目标。当代中国城市基层治理的演进,受“历史基因、执政党双重组织特性、人口规模与管理幅度张力”三重逻辑支配。其一,尽管基层治理沿袭编组的传统,当代的编组已成为破解“超大规模治理”难题的工具,更多朝向便于提供公共服务、推进精细治理和进行资源分配的“社会性”方向演化;其二,执政党既重视自身基层组织建设,还依靠组织群众来获得力量与合法性,是基层治理的主要逻辑;其三,在应对人口规模过大、社会问题增长的复杂性过程中,从“市府权责集中”到“基层权责集中”的改革,是基于属地责任创造可控性、确定性的一种选择。城市基层治理现代化,尚需破解“纵向权责关系、关联失灵、技术主导”等关键议题。

Primary govermance in China has a unique meaning.It is a process integrating"local political power construction"and"primary social governance"In ancient times,the state has incorporated primary society into the gonerning scope,forming a perception of"the local society is the foundation of the state,and the state unifies the society",After the establishment of New China,the old"ruling"'primary organisations were replaced.The evolution of contemporary urban primary governance in China is affected by three logics of"historical genes,the dual organisational characteristics of the CPC,and the tension between the size of the population and the scope of governance".Firstly,although primary governance has a tradition of grouping,the contemporary grouping has become a tool for solving the problem of"mega-governance"by provising public services and allocating resources.Secondly,the CPC both attaches importance to its own basic organisations and relies on the organisations to organize and mobilize the masses.Thirdly,the reform from"centralisation of municipal powers and responsibilities"to"centralisation of powers and responsibilities at the primary level"is a choice based on primary oranizations'responsibility to create controllability and certainty.