基层治理与准行政区划调整的理论与实践——以海南省农场改“居”为例  

The theory and practice of grassroots quasi-administrative division adjustment:Converting farms to‘Ju’in Hainan Province

作　　者：王丰龙 李婧瑜 刘云刚 张吉星 郑渝亚 WANG Fenglong;LI Jingyu;LIU Yungang;ZHANG Jixing;ZHENG Yuya(School of Geography&The Center of Administrative Division and Spatial Governance,South China Normal University,Guangzhou 510631,China;Research Center for China Administrative Division&The Center for Modern Chinese City Studies,East China Normal University,Shanghai 200062,China;Beidou Research Institute,South China Normal University,Foshan 528225,Guangdong,China)

机构地区：[1]华南师范大学地理科学学院/行政区划与空间治理研究中心,广州510631 [2]华东师范大学中国行政区划研究中心/中国现代城市研究中心,上海200062 [3]华南师范大学北斗研究院,广东佛山528225

出　　处：《地理科学进展》2024年第2期262-275,共14页Progress in Geography

基　　金：国家社会科学基金重大项目(21&ZD175,20ZDA037);国家自然科学基金项目(42171225,42230705);教育部人文社会科学重点研究基地重大课题(22JJD790032);广州市基础研究计划基础与应用基础研究项目(2023A04J0911);2023年华南师范大学统一战线理论研究课题(HT202301)。

摘　　要：乡镇等基层政权和村居等自治组织是国家治理单元,对于理顺中央—地方关系、提升基层服务水平等具有重要意义。乡镇属于正式的基层行政区划,村和社区等则可以被视作准行政区划。然而,现有研究很少意识到诸多基层治理单元的准行政区划属性,忽略了基层准行政区划的形成过程及其与正式行政区划之间的冲突。为此,论文以海南省国营农场改制中新设立的“居”为例,从层级、幅员、边界3个维度分析基层准政区设置的逻辑和面临的挑战。研究发现,“居”是海南省农垦集团化、农场公司化和农场社会职能属地化过程中形成的一类典型的基层准行政区划,其行政级别介于社区和镇之间,主要通过政府授权和购买服务等方式行使基层的社会管理和公共服务职能。“居”的准行政区划性质导致其与正式的行政区划(尤其是镇)之间存在层级、幅员和边界上错综复杂的关系,容易导致管理人员晋升通道不畅和社会管理与公共服务的主体缺位等问题,“居”与所属镇和所服务农场公司之间也容易围绕行政管理功能和公共服务供给的属地边界产生争端。研究结果对增进理解单位和国有企业转制、探索基层(准)行政区划的设置和优化路径、深化对准政区问题的研究具有重要意义。Grassroots political entities,including townships,and autonomous organizations,such as villages,serve as the spatial units of national governance system.They play important roles in streamlining the central-local relationship and improving community-level service provision.While towns are part of the formal administrative hierarchy at the grassroots level,villages and communities can be considered quasi-administrative divisions.However,existing research often fails to recognize the quasi-administrative nature of many grassroots governance units,overlooking the formation process of grassroots quasi-administrative units and the conflicts that may arise between these quasi-administrative units and formal administrative divisions.Therefore,this study took"Ju"(dwellings),a newly established quasi-administrative division in the reform of state-owned farms in Hainan Province,as an example to analyze the logics and challenges of the establishment of grassroots quasiadministrative division.The analysis was based on the theoretical framework of quasi-administrative division in three dimensions:level,size,and boundary.The study found that"Ju"is a typical grassroots quasi-administrative division formed in the process of transforming agricultural reclamation system into business groups,converting farms into corporations,and shifting the social functions of farms to local governments in Hainan Province.Its administrative level is between the neighborhood committee and the township,and its social management and public service functions are mainly provided through the local governments'authorization and purchase of services.The quasi-administrative division nature of"Ju"leads to its complicated relationship with formal administrative divisions(especially township)in terms of level,size,and boundary.Specifically,the promotion channel is not guaranteed for the staff working in"Ju"and the actors that provide certain social management functions and public services are absent.It is difficult for the township government to uniformly m

关 键 词：准行政区划 基层治理 “居” 农场 层级 幅员 边界 

分 类 号：F324.1[经济管理—产业经济] D630[政治法律—政治学]