治理重心下移背景下超大城市社区工作者队伍建设的双重困境与突破路径——基于上海市Y基本管理单元的案例分析  

The Double Dilemma and Breakthrough Path of Community Workers Team Construction in Megacities under the Background of Downward Governance Focus:A Case Study Based on Shanghai Y Basic Management Unit

作　　者：熊竞[1,2] 赵吉 XIONG Jing;ZHAO Ji

机构地区：[1]上海交通大学国际与公共事务学院,上海200030 [2]上海交通大学中国城市治理研究院,上海200030

出　　处：《城市发展研究》2023年第7期35-41,49,共8页Urban Development Studies

基　　金：国家社会科学基金项目“政区视野下特大城市基层协同治理机制的空间困境与优化路径研究”(22BZZ059)。

摘　　要：社区工作者是承担基层社区管理与服务的关键性力量,既关系到科层治理目标的精准落地,又深刻影响基层群众美好生活的满意度。针对城市治理重心下移中社区工作者压力大、专业弱、不规范等问题,各地开展了社区工作者的职业化和专业化改革,然而改革导致了社区工作者面临既难得到上级政府认同又难获得人民群众满意的“双重不认可”困境。以上海市S镇Y基本管理单元的典型实践为例,通过构建政策执行理论模型进行案例分析,认为社区工作者队伍建设中出现的双重困境主要受到体制机制、社会系统环境、科层沟通与群体特征的影响,并重点分析了治理重心下移背景下层级协同对社区工作者队伍建设政策效能的影响机制。在此基础上,提出了社区工作者队伍建设的优化思路和政策路径,并从超大城市基层治理现代化的角度做了进一步探讨。Community workers are the key forces responsible for the management and service of grassroots communities,which is not only related to the accurate implementation of the goals of bureaucratic governance,but also profoundly affects the satisfaction of grassroots people′s happy life.In view of the problems such as high pressure,weak profession and non-standard of community workers in the downshifting of urban governance,the professionalization and professional reform of community workers have been carried out in various regions.However,the reform has led to the dilemma of "double unrecognition" of community workers,which is difficult for them to be recognized by the superior government and satisfied by the people.This paper takes the typical practice of Y basic management unit in S Town of Shanghai as an example,and analyzes the case by constructing the theoretical model of policy implementation.It holds that the double dilemma in the construction of community workers team is mainly affected by the system mechanism,social system environment,bureaucratic communication and group characteristics.In addition,the influence mechanism of hierarchical collaboration on the policy effectiveness of community worker team building under the background of the downward shift of governance focus is analyzed.On this basis,it puts forward the optimization thinking and policy path of community worker team construction,and further discusses from the perspective of modernization of grassroots governance in megacities.

关 键 词：社区工作者 重心下移 超大城市 基本管理单元 

分 类 号：D669.2[政治法律—政治学] C936[政治法律—中外政治制度]