我国街道体制改革的现实困境与未来进路
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摘要
"单位制"解体后,"街居制"成为我国目前主要的基层治理机制。面对现实中"街居制"存在的如行政层级增加、行政成本上升,街道功能超载、统筹能力不足,街居关系变化、社区自治受限,官僚色彩增加、诉求回应乏力等问题,学术界和各地区都进行了不同方向的讨论和实践,主要分为保留街道办和撤销街道办两个方向。然而已有措施都没有带来令人满意的成效,街道体制改革需坚持公众利益最大化的本质目标,我们必须在条块关系、管理层级和幅度、政府管理和社会自治、核心引导和多元共治、制度变迁和技术创新等五方面继续深入探索。
After the disintegration of the "work unit system",the "street residence system"has become the main grassroots-level governance mechanism in China. In reality,there are a number of problems plaguing this mechanism such as the increase of administrative hierarchy,the rise of administrative cost,the overloading of street function,the lack of coordination,the change of the relationship between street administration and household residence,the restriction of community autonomy,the increase of bureaucracy,the lack of prompt response to demands,and so on. With regard to the reservation or abolition of subdistrict offices,people across different administrative regions especially those from the academic circles have engaged themselves in in-depth discussions both in theory and in practice. However,the existing measures adopted have yet to bring about satisfactory results. The reform of the street residence system needs to adhere to the essential goal of maximizing public interest,while at the same time addressing the following five aspects of issues: the relationship between upper and lower strips,the level and extent of management,the balance of government management and social autonomy,the combination of core guidance and pluralistic cogovernance,and the promotion of institutional change and technological innovation.
After the disintegration of the "work unit system",the "street residence system"has become the main grassroots-level governance mechanism in China. In reality,there are a number of problems plaguing this mechanism such as the increase of administrative hierarchy,the rise of administrative cost,the overloading of street function,the lack of coordination,the change of the relationship between street administration and household residence,the restriction of community autonomy,the increase of bureaucracy,the lack of prompt response to demands,and so on. With regard to the reservation or abolition of subdistrict offices,people across different administrative regions especially those from the academic circles have engaged themselves in in-depth discussions both in theory and in practice. However,the existing measures adopted have yet to bring about satisfactory results. The reform of the street residence system needs to adhere to the essential goal of maximizing public interest,while at the same time addressing the following five aspects of issues: the relationship between upper and lower strips,the level and extent of management,the balance of government management and social autonomy,the combination of core guidance and pluralistic cogovernance,and the promotion of institutional change and technological innovation.
引文
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[2]周雪光.权威体制与有效治理:当代中国国家治理的制度逻辑[J].开放时代,2011(10):70.
[3]中华人民共和国民政部.中华人民共和国城市居民委员会组织法[EB/OL].(2007-11-10)[2018-04-10].http://www.mca.gov.cn/article/gk/fg/jczqhsqjs/201507/20150700848492.shtml.
[4]杨宏山.街道办事处改革:问题、路向及制度条件[J].南京社会科学,2012(4):60.
[5]叶娟丽,马骏.公共行政中的街头官僚理论[J].武汉大学学报(社会科学版),2003(5):612.
[6]韩志明.街头官僚的行动逻辑与责任控制[J].公共管理学报,2008(1):44.
[7]李荣娟,田仕兵.基于整体性治理理论的街道办事处改革研究[J].学术论坛,2015(1):137.
[8]周平.街道办事处的定位:城市社区政治的一个根本问题[J].政治学研究,2001(2):80.
[9]饶常林,常健.我国城市街道办事处管理体制变迁与制度完善[J].中国行政管理,2011(2):87.
[10]李荣娟,朱光喜.将街道办事处建成一级政府的依据和构想[J].江汉大学学报(人文科学版),2004(3):10.
[11]浦兴祖.特大城市城区管理体制的改革走向——兼谈“两级政府、三级管理”之提法[J].政治学研究,1998(3):55.
[12]彭潇.街道办事处改革与社区建设的路径选择[J].人民论坛,2010(4):53.
[13]陈国申,李媛媛.街道办撤销对居民自治的影响探析——基于皖鄂黔三省三市的考察[J].江汉论坛,2017(6):39.
[14]中共南京市委,南京市人民政府.关于印发《深化街道和社区体制改革实施方案》的通知[EB/OL].(2014-10-12)[2018-04-11].http://www.nanjing.gov.cn/xxgk/szf/201802/t20180206_5266359.html.
[15]中共玄武区委,玄武区人民政府.关于印发《玄武区深化街道和社区体制改革实施方案》的通知[EB/OL].(2015-05-06).[2018-04-11].http://www.nanjing.gov.cn/xxgk/qzf/xwq/xwqmzj/201505/t20150506_3296026.html.
[16]包头市青山区人民政府.包头市青山区2015年政府工作报告[EB/OL].(2015-05-06)[2018-04-11].http://www.nmg.gov.cn/zqzf/zfgzbg/bts_1852/201502/t20150205_370651.html.
[17]包头市人民政府.包头市2015年政府工作报告[EB/OL].(2015-01-21)[2018-04-11].http://www.gov.cn/zzqzf/zfgzbg/bts_1852/201501/t20150121_367904.html.
[18]佛山市人民政府.容桂街道入围全国文明单位候选名录[EB/OL].(2016-07-26)[2018-04-13].http://www.foshan.gov.cn/zwgk/zwdt/wqdt/sdq/201607/t20160726_5913745.html
[19]习近平.决胜全面建成小康社会夺取新时代中国特色社会主义伟大胜利[M].北京:人民出版社,2017:61-62.