摘要
在社会管理创新、转变政府职能、新时期社会组织体制建设等一系列宏大叙事的背景下,20世纪90年代以来兴起的以"小政府、大社会"为初衷的社区建设持续推进,其突出的表现便是在街道办事处机构外围,发展了数量庞大的"社会组织"。一些基于国内不同地区社会组织产生、发展和运行的经验研究表明,在中国,社会组织的发展与政府治理转型间并不存在必然的线性因果联系,通过大力发展社会组织就能促进社会治理转型的论断过于简单和理想化。本研究通过描述上海市T街道市政工作中的物业管理,民政工作中的社区建设以及基层党建领域引进社会组织参与治理的个案,分析了各个项目产生的基层治理背景,以及在项目执行过程中各社会组织与街道办事处、居委会以及其他基层自治群团组织之间的交往和互动关系。通过建立起基于条块关系、街居关系和基层党建三个维度的基层治理实践制度分析框架,初步考察了社会组织介入基层社区治理对于T街道治理模式的实质作用和潜在影响。
During the past decade,with the conversion of national macroscopic governing philosophy and political context,local governments at all levels has been changing their work center from"taking economic construction as the key task"which start since the Reform and Opening-up to the theme of"construct a harmonious society".In the new context of a series of grand narrative such as innovation of social management,the transformation of government function,system construction of social organization,the community construction,which put advanced at the 1990s with the"small government,large society"as the original intention and ultimate goal has still continuing and be put forward.The outstanding performance is that,around in the Street-Community Agency Institutions,they develop a large number of organizations so-called"Non-Government Organization".Where in the western world,the rise and explosion of Non-Government Organizations,has once been puffed and praised by both the government and academic circles as"the carrier of social autonomy development","the catalysts of change of government governance","engine of democracy and autonomy",and many other beautiful visions.A large number of studies suggest that with the development of government purchasing Non-Government Organizations’service,more and more Non-Government Organizations will participate in the governance of urban society through a variety of projects,which will break the dominant position and single part of government in the traditional social governance system,so as to promote the benign interaction between the government and society and construct close cooperation,a new type of social governance with multiple-participation will be vividly portrayed.How ever,some empirical researches based on development and operation of Non-Government Organizations from different parts in the domestic shows that,in China,there is not necessarily linear causal link between the development of Non-Government Organizations and the transformation of government governance,the conclusion which by vigorously developing Non-Government Organizations can promote the transformation of the social governance was something too simple and ideal.First of all,a number of empirical studies show that in the Chinese society,as a leader of the existing governance structure,the government can control and shape the institutional environment of Non-Government Organizations in a certain extent,so as to guide and constraint their behavior towards the expectation of the governments.As a result,the behavior of Non-Government Organizations in China show characteristics of"Decoupling of Organization"and"Institutional Isomorphism".Second,some other empirical research shows that:even under the"classification control"system which constructed by government,the behavior orientation of Non-Government Organizations also shows diverse characteristics,and they can put a certain influence on government actions and even governance mode.Situations described above all show that in China,the relationship between the government and Non-Government Organizations is a process of dynamic evolution,and the relationship between development of NonGovernment Organizations and government behavior and pattern of governance is abnormal complex,far beyond the simple reasoning and imagine in many researches before.Though there are a large number of existing studies reveal that the development of Non-Government Organizations may bring in diverse characteristics of governance,however,past studies in this field still lack a clear and systematic analysis framework to reveal and recognize the links and mechanisms between the development of Non-Government Organizations and the government governance mode.In Shanghai,around the community construction,the Street-Community Agency,which represented the first-line managers in urban society,has carried out endless innovation practice in the fields such as innovation of social management,changing the supplying mode of public service,and community autonomy and co-governance.Among the transformation of government functions at the street office,innovation of the supplying mode of public service,promoting the construction of community autonomy and other practice of governance innovation,Non-Government Organizations take a variety of ways and identity,to participate in the local practice of social governance.As a benchmark for Shanghai to foster and introduce social organizations to participate in grassroots social governance,what has changed in the governance mode of T Street-Community after introducing Non-government Organizations participating in community?Based on the forms of observation,interviews,and questionnaires in the field survey method,the study describes the work and practice of T-street development and the introduction of socialorganizations to participate in community governance,and uses the theory and methods of organizational research to describes the property management of municipal work,the community construction in civil affairs work,and the case of introducing social organizations to participate in governance in the field of grassroots party building.And it also introduced their main project contents in detail,analyzed the grassroots social governance background generated by the project,and the interaction and interaction between various social organizations and street offices,neighborhood committees and other grassroots autonomous group organizations during project implementation.Through the establishment of the framework of the grassroots governance practice system based on the three dimensions of block relationship,street relationship and grassroots party building,the paper systematically examines the substantive impact of social organizations on the governance model of T street.This research is mainly divided into three parts:The first chapter is the combing of the dilemma in the grassroots governance of the street and the domestic and foreign research materials in related fields.Through the analysis of governance dilemmas and the review of the impact of social organization and its governance from the perspective of structural and action,the judgment of general,vague and ought to be effective,and the interpretation of the role and functional imagination of NGOs in governance,it elaborates the necessity of developing social organizations and the achievements and shortcomings of relevant research fields domestic and abroad,which provides useful enlightenment for the research direction and content of this paper.The second chapter is the case study part,focusing on the practice of T-street introduction of social organizations to participate in grassroots governance.This chapter is divided into two parts:The first part,the article deeply analyzes the T-street management and a series of means and measuresto guide social organizations to participate in grassroots community governance.First of all,the manager directly or indirectly identifies the legitimacy of the organization through various forms,which can be said to be the throat of the organization.The T-street of this paper directly grasps the legality of the social organization by registering and registering the two aspects of licensing and activity w arning.Secondly,the grassroots managers represented by the street offices guide the social organizations towards their own expectations through the classification and allocation of resources.T Street’s resources are mainly allocated to social organizations through the configuration of conventional resources and project support,ensuring the control and allocation of public resources to the streets.Finally,the organization’s action strategy and its"efficiency"depend on the organization’s accurate understanding of the environment and its capabilities.Therefore,in this sense,resource control and legitimacy control as external control only provide the possibility to achieve the target control of the organization.Cognitive control as implicit control is the most effective way to achieve organizational target control.In the practice of managing social organizations,T Street in this paper actually implements such control more or less:training,attending meetings,and information evaluation and reporting incentives.The second part introduces in detail the actual situation of the development and cultivation of social organizations in the three core areas of T-street grassroots governance practice.By describing the historical background of the cultivation and introduction of social organizations in the three core areas of T-street work,this study analyzes the specific governance scenarios generated by each project,and traces the specific practices of each society in implementing projects in grassroots communities,focusing on the interaction between social organizations and the neighborhood committees,industry committees and other community groups during the implementation ofthe project to try to find out and summarize the practical role played by various social organizations in grassroots governance.The third chapter is the theoretical innovation part of this research.The paper analyzes the potential impact and overall performance of the T-street governance system after the introduction of these social organizations to participate in grassroots community governance.In general,under the care of the social organization of these maintenance workers,the old street-resident system continues to operate vigorously in diverse and complex communities.Also through the various projects carried out and implemented by these social organizations,the various fragmented"community"elements introduced on the basis of the street residence system in the previous community construction period are also temporarily attached to one.It not only strengthens the connection between the street and the resident,but also effectively enhances the communication and contact between the street office as the management and the grassroots community.At the same time,it also attracts and condenses a group of community leaders and activists through the implementation of various projects.It also has strengthened the mobilization ability of the grassroots society and further consolidated the mass base of the street-resident system.Research shows,changing from the street-resident system to community system is a long-term evolution process,far beyond the simple reasoning and imagine from a lot of research before.As the representative of NonGovernment Organization,W Club,Z Center and the X Club are just system patches of the existing street-community governance framework in more complexity social environment,they act the role of maintainer for the machine of Street-community System.By purchasing services,T Street subcontracts various governance task to Non-Government Organizations.On the one hand,this makes the Non-Government Organizations involved in the grass-rootssocial management,and to a certain extent,they eased the Tiao-Kuai contradiction,improved the relationship between the street and residents,enriched and expanded the work of basic party,perfected the grass-roots form of governance,and strengthened the core hub position of the street office in grassroots governance;on the other hand,these social organizations,through the cooperation and mobilization during the implementation of the project,have applied lubricants to the various gears on the street system,the neighborhood committee,the industry committee,and the community group organization,reducing the friction in the grassroots community in work process and added energy for their operation.So they greatly promoted both social mobilization ability and legitimacy for street-resident system in the grass-roots governance structure.
出处
《政治人类学评论》
2019年第1期155-215,284-290,8,共69页
Political Anthropology Review
关键词
社会组织
条块关系
街居关系
政社关系
基层治理转型
Social organization
Block relationship
Street relationship
Political and social relations
The transformation of grassroots governance
