當代中國地方治理的發展：城市居民委員會治理模式之比較分析

Study on the Development of Local Governance in Contemporary China: Comparing the Governance Modes of Urban Residential Committee

柳金財(Chin-Tsai Liu)

《弘光人文社會學報》 3期 (2005/08) Pp. 358-403

https://doi.org/10.29933/SHSS.200508.0011

摘要

本文的目的旨在探討中國城市社區居民委員會的治理模式，並加以比較之。中國城市居民自治組織的治理型態，被視為處於社會經濟轉型期城市社區建設重要的一環。城市社區治理與建設主要是根據「小政府，大社會」的理論而來，為實現草根基層民主的有效方式。政府管理體系改革的方向及目標即是邁向「良好的治理」，治理隱含著將權力從政府轉移至社區身上，發展社區自治的能力與克服過度行政化的缺點。「良好的治理」意謂著政府行政與社區自治能夠相互合作、成長與適應。本文試著比較中國不同城市社區管理體制模式間，其特徵、功能、組織結構設計與選舉之差異。城市社區是一種多層次目標的組合，扮演著政治、經濟與社會重要角色。在社區治理結構中，居民委員會作為一種自治性組織，具有「官民二重性」，同時擁有若干行政與自治功能。一般說來，在研究中國城市的社區治理觀點爭論中，主要存有兩種取向：第一種觀點稱之「行政主導型」，著眼於基層政權建設，強調城市管理權力的下放和政府權力在社區的整合。即運用政府及其所控制的資源進行「自上而下」的社會整合，並形成「新政府社會」，如上海模式、北京模式等。第二種觀點是「自治型」，著眼於社區共同體的形成，強調「由下而上」及社區動員、居民參與和社區自治；藉由強化基層社區的功能，建立社區自治組織，通過社區組織動員社會參與進行社會整合，形成「社區型社會」，其典型模式如瀋陽模式及江漢模式。本文指出各種城市居委會自治與選舉模式特色，包括問題與缺陷。目前中國城市社區治理模式主要可歸納下列九個：寧波、南京、廣西、江漢、上海、瀋陽、北京、哈爾濱、青島模式。這些治理模式儘管有其特色，但在治理過程中皆不同程度上面臨一些困境：如政府功能的「錯位」與「缺位」；行政主導傾向；欠缺權威及政治參與較低。社區的自治法理定位與行政化實際運作間的衝突，導致居委會的自治組織地位淪為「准行政化組織」，無法有效發揮其自治功能。本文藉由分析中國八種城市社區治理模式，歸納與比較各模式間的差異，冀未來研究能夠尋求較佳社區自治方案與可能建構一種新的城市社區管理體制模式。

關鍵字

社區建設 ； 居民委員會 ； 治理 ； 社區自治 ； 社區管理體制

並列摘要

The article aims at studying the governance modes of urban residential committee. Governance of residential autonomy organization will be regarded as an important component in urban community construction, during the period of societal-economic transition in contemporary china. Urban community governance and construction based on the guide of the theory of ”the little government, the big society”, is an effective way to realize grass-roots democracy. Good governance is a reform trend of government management system, implication of governance is to transfer power from government to community, developing the capability of community self-government and overcoming drawbacks of administration. Good governance means that government administration and community autonomy can cooperate, accrete and accommodate with each other.The article focuses on trying to search and compare the characters, function, design of structure and the differences of election on urban community management model system. Urban communities are a multi-purposes combination, which plays an important role in politics, economy and social security of the nation. In the structure of community governance, residential committee exists as a self-government community between government and residents, it’s an organization which owns some self-government functions and some administrative functions of government. Generally speaking, there are two arguments or perspectives existing on studying urban community management. One perspective called ”government guiding style” focuses on building of grass-roots state power, emphasizing on the direction from up to down, shifting power from government to community and power integration of state and community, and constructing ”new governmental society”, such as Shanghai and Beijing. Another perspective called ”autonomy style” focuses on the formation of community and strengthening its function, emphasizing on the direction from bottom to top and community mobilization, resident participation and community autonomy, and constructing ”community society”, such as Shenyang and Jianghan.The article points out the characteristics of various modes of urban residential committee self-government and election, including problems or shortcomings. it chooses Ningbo, Nanjing, Guangxi, Jianghan, Shanghai ,Shengyang, Beijing, Harbin and Qingdao as nine representative modes. Based on a comparision between the constitution-guaranteed autonomous community and administrative community, many problems occurred in the process of community governance, which mainly includes the overlap and absence of government’s function, administrative orientation, lack of authority and lower degree of political participation. As urban community self-government organization, residential committee’s self-government function cannot run effectively. After comparing their different measures among the modes of urban residential committee self-government and election, we can find distinction of nine modes of community governance and evaluate each mode’s advantages and disadvantages, searching for better alternatives of the urban community self-government and inquiring into the possibility of constructing a new mode of urban community management system in china.

並列關鍵字

Community Construction ； Residential Committee ； Governance ； Community Autonomy ； urban community management system