整体性治理视角下的超大特大城市基层治理——基于广州实践的探索  

A Holistic Governance Perspective on the Grassroots Governance in Super Large-Sized Cities-The Case of Guangzhou’s Practices

作　　者：叶林[1] 陈雪强 胡中龙 YE Lin;CHEN Xueqiang;HU Zhonglong(School of Government,Sun Yat-Sen University,Guangzhou 510275,China)

机构地区：[1]中山大学政治与公共事务管理学院,广东广州510275

出　　处：《岳麓公共治理》2025年第1期2-12,共11页YUELU PUBLIC GOVERNANCE

基　　金：国家社会科学基金重大项目:粤港澳大湾区世界级城市群治理体系创新研究(20&ZD158);教育部人文社会科学重点研究基地重大项目:共同富裕背景下的城市治理现代化与城乡融合发展研究(22JJD630023);广州市人文社会科学重点研究基地成果。

摘　　要：随着我国城镇化进程步入下半场,城市基层治理与公共服务供给压力与日俱增。与此同时,条块分割下作为执行末端的基层治理乏力、超大特大城市的庞大规模加剧了公共服务的压力。为践行以人民为中心的城市发展思想,我国超大特大城市进行了一系列治理创新与探索。其中,广州开展了镇街综合行政执法与全域服务治理两项改革,二者分别从政府内部职能调整及外部多元力量动员角度开展。镇街综合行政执法改革整合执法力量划归镇街统筹,将基层执法权有效集中、统一执行,是基层“条块”合作的积极探索;全域服务治理在公共服务外包的基础上,以产业导入实现闲置公共资源激活,通过政府、市场的合作创新公共服务供给方式,注重调动政府、企业、行业组织及公民的积极性,推动城市治理的科学化、精细化、智能化。以整体性治理的理论视角,从纵向整合角度分析综合执法改革,从横向协同角度分析全域服务治理改革,两项改革各成体系、目标统一,形成超大特大城市基层治理的创新探索。As China’s urbanization enters the second half,day by day,there is an increasing pressure on urban grassroots governance and public service supply.Concurrently,the fragmented bureaucratic system has resulted in insufficient governance capacity at the executive end of grassroots administration,while the massive scale of super large-sized cities further exacerbates public service challenges.To implement the people-centered development philosophy,China’s megacities have recently undertaken a series of governance innovations.Notably,Guangzhou has implemented two pivotal reforms:the decentralization of comprehensive administrative law enforcement forces to township/subdistrict levels and the comprehensive service governance initiative.These two reforms advance from the perspective of internal governmental function adjustment and external multistakeholder mobilization,respectively.The decentralization reform integrates law enforcement resources under township/subdistrict coordination,effectively consolidating grassroots enforcement authority through vertical collaboration between vertical departments(“tiao”)and horizontal jurisdictions(“kuai”).Meanwhile,the comprehensive service governance reform innovates public service delivery through government-market partnerships,activating idle public resources via industrial engagement while emphasizing multi-actor participation from government,enterprises,industrial organizations,and citizens.This dual approach promotes scientific,refined,and intelligent urban governance.Through the theoretical lens of holistic governance,this paper analyzes the vertical integration characteristics of the law enforcement decentralization reform and the horizontal collaboration mechanisms of the comprehensive service governance initiative.Though operating as distinct systems,these reforms demonstrate unified objectives in addressing megacity governance challenges,collectively contributing Guangzhou’s practical experience to the advancement of grassroots governance modernization in

关 键 词：超大特大城市 基层治理 整体性治理 综合行政执法改革 全域服务治理 

分 类 号：D630[政治法律—政治学]