走向社区治理

当代中国发生的最深刻的变动,是由原先行政一体化的结构向着政府(公域)、市场(私域)和社会(第三域)并存的结构体系转变。在这个过程中,城市基层社区的重要性不断突显出来。上海社区建设的实践模式已经展现出同时并存的四个工作系统:党的群众工作系统、城市基层行政管理系统、社会生活服务系统和社区居民自治系统。在这个模式的形成过程中,既有政府“行政化主导”和“行政性推动”的作用,也有“社会化发育”和“社区化参与”的作用。自上而下的行政建设和自下而上的自治建设始终同时在推进,是上海社区建设整体进程中的两大结构性力量。但二者并非构成相互不可调和的对立面。只有当其中的一个结构性力量试图排挤甚至取消另一个结构性力量的时候,二者才会表现为一对矛盾。因此,应该引入“社会治理”理念,在城市基层社区构建一个以具体的公共事务为治理内容、政府行政组织和各种群众自治组织之间有效合作、和现代化城市管理相适应的社区治理格局。

Developing toward Community Governance

The most profound change in modern China is the transformation from the uni-system of administration to the co-existent administrative systems of governments (the public domain), markets(the private domain) and society(the third domain), in the course of which the importance of urban grass-root communities is coming prominent. This essay argues that Shanghai model for community building has, shown four simultaneous working systems:the system of the Party's work for the masses, the administrative system of urban grass roots, the service system of social life, and the system of community autonomy by residents. The forming course of this model results from both "governmental guidance and administrative propel" and "upgrowth of socializatioin and participation of communities". The building of administration from above to below and the building of autonomy from below to above are simultaneously carried out, which are the two main forces of structure in the entire process of the community-building in Shanghai. Those two are not necessarily contradictive to each other. Only when one tries to squeeze the other out can they be contradictive. Hereby, this essay argues the idea of that "social governance" should be introduced, and that we must, in urban grass-root communities, set up a community-governance pattern adapted to administration of modem cities, which governs concrete public affairs and makes effective collaboration between governmental organs and diversified autonomous organizations of the masses.