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1、 關(guān)于當(dāng)前中國城市社區(qū)管理現(xiàn)狀的研究 摘要:當(dāng)中國城市社會經(jīng)濟(jì)進(jìn)入某一階段時，積極推進(jìn)社區(qū)管理是一個不可避免的要求。目前,中國的社會經(jīng)濟(jì)正處于全面發(fā)展的時期,在城市社區(qū)的管理方面仍不完善，有些問題急需解決。本文通過分析中國城市社區(qū)管理當(dāng)前所面臨的一些問題,并提出有關(guān)相應(yīng)的對策以加強和完善中國的城市社區(qū)管理。對中國城市社區(qū)管理實踐的層面而言，這些建議有一定的參考價值。 關(guān)鍵詞：社區(qū)，城市社區(qū)管理，對策 一、引言 社區(qū)作為城市的一個基層組織，是城市的一個重要組成部分。隨著中國市場經(jīng)濟(jì)體制的快速發(fā)展和進(jìn)一步的深化改革，社區(qū)作為一個社會自治的基層組織，其獨特的社會功能和作用也越來

2、越明顯。社區(qū)管理作為城市管理的基石，在充分發(fā)揮社區(qū)群眾的力量,推進(jìn)經(jīng)濟(jì)社會共同進(jìn)步方面起著十分重要和不可替代的作用。完善的社區(qū)管理也有助于構(gòu)建和諧舒適的生活氣氛，進(jìn)一步提高人們的生活水平和質(zhì)量。因此，通過提高社區(qū)管理水平來加強和改善城市的現(xiàn)代化管理，正日益成為一個重要的手段。 自從中國改革開放以來,社區(qū)管理越來越受到重視和關(guān)注，已經(jīng)是城市現(xiàn)代化管理的一個基本特征。 因此,在進(jìn)一步推進(jìn)城市現(xiàn)代化的過程中，我們必須積極轉(zhuǎn)變中心城市的管理方式，依照城市和地區(qū)的現(xiàn)代化水平分解城市管理的一些功能，通過社區(qū)管理這個平臺來提高城市的現(xiàn)代化管理水平。所以，如何改革舊的城市社區(qū)管理體制,建立一個新型的社區(qū)管

3、理系統(tǒng)以滿足社會經(jīng)濟(jì)發(fā)展的需要,使社區(qū)充分發(fā)揮其特有的社會功能對于城市的進(jìn)一步發(fā)展,已經(jīng)成為一項緊迫的任務(wù)。 二、當(dāng)前中國城市社區(qū)管理中存在的主要問題 目前,中國城市社區(qū)管理體制的改革,已經(jīng)有了初步效果。但從構(gòu)建新型社區(qū)管理系統(tǒng)的實踐中,我們?nèi)匀豢梢园l(fā)現(xiàn)一些存在于城市社區(qū)管理中的問題。它們主要表現(xiàn)在以下幾個方面： （1）隨著“單位制”的消失，大量的城市工人和居民逐漸轉(zhuǎn)變?yōu)椤吧鐣恕被蛘叱蔀樽杂陕殬I(yè)者加強了城市的流動性。源自四面八方不斷增加的人口，使城市的人口結(jié)構(gòu)越來越復(fù)雜，從而導(dǎo)致社區(qū)管理也越來越困難。 （2）失業(yè)的風(fēng)險所帶來的自由就業(yè)導(dǎo)致的事實是：在某些社區(qū)，“貧窮階層”是不斷出現(xiàn)和

4、擴大。他們的社會保障和福利，例如失業(yè)補償、醫(yī)療津貼、貧困家庭的兒童教育和社會撫恤金不能得到有效地保證。 （3）市民參與社區(qū)管理的意識不足。尤其缺乏關(guān)于社區(qū)建設(shè)的理解。在社區(qū)日常事務(wù)的管理方面，參與度也不足。 （4）社區(qū)管理的職能分工模糊。從橫向?qū)用婧涂v向?qū)用娴慕嵌瓤矗鐓^(qū)管理中存在著工作的不協(xié)調(diào)性。基層社區(qū)組織的主體是相關(guān)的行政管理部門。他們把自己的精力和物質(zhì)資源都投入到各自的工作中，但卻不能相互合作和相互協(xié)調(diào)，從而導(dǎo)致管理力度的分散。 （5）由于管理體制等各方面的原因，社區(qū)居民委員總是在政府部門的護(hù)航下，完善自身的建設(shè)和開展他們的工作。因此，城市社區(qū)要實現(xiàn)真正的自治，仍然會有很長很艱難

5、的路要走。 （6）社會公共管理和服務(wù)的作用并未在日常生活中充分發(fā)揮出來，加上基礎(chǔ)設(shè)施發(fā)展的不健全，沒有形成一個完整的體系。社區(qū)管理普遍存在著服務(wù)功能劣質(zhì)、地址布局不合理和不便于民的問題。 上述提及的一些問題已經(jīng)變成中國城市社區(qū)管理發(fā)展的障礙了。 三、中國城市社區(qū)管理發(fā)展的對策 中央政府已經(jīng)為城市社區(qū)管理設(shè)定了相應(yīng)的目標(biāo)。要求如下： （1）符合城市現(xiàn)代化的需要，加強社區(qū)黨的建設(shè)和居民自治組織的建設(shè)，基于情感的歸屬，構(gòu)建新的社區(qū)組織體系。 （2）為了滿足社區(qū)居民日益增長的物質(zhì)文化需要，以社區(qū)服務(wù)的擴展為突破點，促進(jìn)社區(qū)服務(wù)的網(wǎng)絡(luò)化和現(xiàn)代化。 （3）從根本上改革城市管理體制，建立

6、符合社會主義市場經(jīng)濟(jì)體制的社區(qū)管理體制和運行機制。 （4）堅持政府的指導(dǎo)和公民參與的結(jié)合，充分發(fā)揮社區(qū)的力量，合理分配社區(qū)資源，提高整個社區(qū)居民的素質(zhì)和社區(qū)的文明程度。與此同時，努力構(gòu)建新型現(xiàn)代化的社區(qū)。 為了達(dá)到上述目標(biāo)的要求，提出以下幾點建議來解決中國城市社區(qū)管理發(fā)展過程中的相關(guān)的問題： 3.1嚴(yán)格依據(jù)民主的原則管理社區(qū) 建立最高權(quán)力機構(gòu)——社區(qū)成員的代表大會，它的成員有社區(qū)所有居民選舉產(chǎn)生。它是一個決策機構(gòu)，有權(quán)處理社區(qū)的重大事件，有決策和監(jiān)督的職能。通過自薦或者民主推薦，選舉產(chǎn)生主席和社區(qū)居民委員會的成員。社區(qū)居民委員會負(fù)責(zé)管理社區(qū)具體事務(wù)，并受到社區(qū)成員代表大會的監(jiān)督。而社區(qū)

7、的協(xié)商組織機構(gòu)是由著名的人物,全國人民代表大會、中國人民政治協(xié)商會議全國委員會的成員,社區(qū)的代表單位和居民組成的。通過談判議程，民主監(jiān)督，提出意見和建議，它能影響重大決策和管理活動；另外，社區(qū)也應(yīng)該設(shè)置一些詳細(xì)的規(guī)章制度來保障處理事務(wù)的公開性、服務(wù)的可信性、公眾的支持度等等。當(dāng)條件成熟的時候，社區(qū)自治規(guī)則也應(yīng)該保證社區(qū)依法自治的健康運行。 3.2完善社區(qū)組織管理的法律體系 （1） 建立具有法人資格的機構(gòu),比如按照法律法規(guī)成立的社區(qū)管理委員會，并給與它相應(yīng)的權(quán)利和義務(wù),明確劃分它的行為與政府的界限。 （2） 通過法律法規(guī)成立各種各樣的委員會或社區(qū)的行政機構(gòu),為了讓社區(qū)充分發(fā)揮其有效作用，使

8、相應(yīng)的功能性組織行使權(quán)管理、檢查、監(jiān)督、懲罰的權(quán)力。 （3）設(shè)置相應(yīng)組織的最大權(quán)限，通過法規(guī)使社區(qū)的各種組織相互牽制，并建工作的內(nèi)部和外部的監(jiān)控體系以確保維護(hù)大多數(shù)居民的利益。 3.3 提高居民的自我管理意識的方法 政府應(yīng)該尊重像居民委員會這樣的具有法律地位的基層自治組織，支持和保障居民他們的自治活動權(quán)力,引導(dǎo)代表居民討論社區(qū)居民關(guān)心的主題,并加強民主決策的權(quán)利。關(guān)于住宅區(qū)的建設(shè)等重大問題，應(yīng)該提交給居民委員會或居民會議進(jìn)行討論和執(zhí)行實施。此外,政府應(yīng)該提高和加強社區(qū)的職責(zé)，并逐漸將這些職責(zé)轉(zhuǎn)移給社區(qū)。這不僅能增強社區(qū)成員對社區(qū)事務(wù)的注意力程度，也能減少政府不必要的負(fù)擔(dān)。 3.4積極促

9、進(jìn)社會福利的社會化和培養(yǎng)社區(qū)的服務(wù)行業(yè) （1）實現(xiàn)投資主體的多元化。采取國家,集體和個人的多渠道投資,建立一套擁有多種所有權(quán)形式的發(fā)展模式。 （2）實現(xiàn)服務(wù)對象的公共化。社區(qū)服務(wù)行業(yè)應(yīng)該面對所有社區(qū)居民和不斷地擴大服務(wù)領(lǐng)域,服務(wù)范圍和覆蓋率。 （3）實現(xiàn)多樣化的服務(wù)方法。以一個更具成本效益的方式開發(fā)服務(wù)設(shè)施和社區(qū)福利的網(wǎng)站,建立社區(qū)福利服務(wù)體系以滿足社區(qū)居民的多樣化需求。 3.5加強社區(qū)管理的人員隊伍建設(shè)以滿足城市現(xiàn)代化的需要 在城市社區(qū)的建設(shè)和管理中，人是最關(guān)鍵的因素。因此，在推進(jìn)城市社區(qū)管理改革和構(gòu)建城市社區(qū)的管理模式的過程中，管理團(tuán)隊的建設(shè)是至關(guān)重要的。目前，城市社區(qū)的管理團(tuán)隊

10、與現(xiàn)代化的城市發(fā)展需求仍有很大的差距。主要表現(xiàn)在以下幾個方面：年齡結(jié)構(gòu)、文化結(jié)構(gòu)、思想品質(zhì)、服務(wù)和協(xié)調(diào)的能力等。因此，為了提高他們的整體素質(zhì)，一方面，要加強現(xiàn)有管理人員的專業(yè)培訓(xùn)；而另一方面，我們也可以通過引進(jìn)人才來調(diào)整社區(qū)管理團(tuán)隊，從而確保社區(qū)管理與城市的社會經(jīng)濟(jì)發(fā)展相符合。 四、結(jié)論 伴隨著中國整個社會經(jīng)濟(jì)的穩(wěn)步發(fā)展,城市的現(xiàn)代化水平不斷提高。根據(jù)民主原則，城市社區(qū)的管理在政府在采取綜合協(xié)調(diào)的基礎(chǔ)上，會逐漸形成一種自助和自我管理的模式。這種模式在未來的中國城市社區(qū)管理將是一個必然的發(fā)展趨勢。 參考文獻(xiàn) [1] Study on Current Situation of C

11、hina’s Urban Community Management,Baoding, P.R.China,2005 International Conference on Public Administration [2]Facilitating Community, Enabling Democracy: New Roles for Local Government Managers .John Nalbandian.Public Administration Review.Vol. 59, No. 3 (May - Jun., 1999), pp. 187-197 [3]David.

12、H. The Future Role and Organization of Local Government. Birmingham: The Institute of Birmingham University, 1986: 89-90 [4]Mite Ethicon. The Spirit of Community: Rights, Responsibilities, and the Communitarian Agenda. New York: Crown Publishers Inc, 1993: 77-79 [5]Urban Aging Community Building P

13、roblems, Causes and Countermeasures: A Case Study of Beibei District, Chongqing, China,2011 International Conference on Public Administration Study on Current Situation of China’s Urban Community Management Abstract :It is an inevitable demand for actively advancing community management

14、when China’s urban social economy enters certain stage. At present, while Chinas social economy is all-round developing, there are still some urgent problems to be solved in urban communitys management. Based on the analysis of current problems faced by China’s urban communities, this paper proposes

15、 some relevant countermeasures in order to strengthen and perfect the urban community management in China. The suggestions may be of certain reference value to the urban community management practice in China. Key words : Community, Urban community management, Countermeasure 1 Introduction A co

16、mmunity is a cell and an important component of the city. With further deepening of the reform of urban economic system and the fast development of market economy of China, community, as a social autonomy organization at the basic level, its unique social function is becoming more and more prominent

17、. Community management, the foundation of city management, plays an extremely important and irreplaceable function to give full play to the strength of the community masses, advancing the economic society to progress together, building harmonious and comfortable atmosphere and raising life quality o

18、f the people undoubtedly. Hence, the strengthening of urban modernization management that relies on community management is becoming an important means to improve the level of urban modernization management. Since China’s reform and opening-up, the community management was being more and more rega

19、rded as the important and basic characteristic of urban modernization management. So,we must shift down the center of city management progressively while continuing advancing city modernization, separate some functions of city management from city and district level in order to raise the level of mo

20、dernization management of cities based on community management. So how to reform the old urban community management system and set up a new-type community management system in order to meet the developing needs of social economy and make the community give full play to its peculiar social function a

21、nd establish a solid foundation for the further development of the cities, has already become an urgent task presently. 2 Main problems existed in current urban community management of China At present, the reform of urban community management system of China has already had preliminary effect, bu

22、t from the practice of constructing new-type community management system, we could still find some problems in urban community management. They are mainly shown in the following aspects: (1) As "system of unit" fades, large quantities of urban workers or residents have already been transited to "so

23、cial people" or freemen and the urban mobility is strengthened, the population from other places increases, the urban population structure is more and more complicated and the difficulty of community management is increased day by day. (2) The risk of unemployment brought by free employment led to

24、the fact that in some communities, “under-privileged stratum” is appearing and expanding constantly. Their social security and social welfares like unemployment compensation, medical treatment subsidiary, aids for education of poor familys children and social pension could not be assured efficiently

25、. (3) Peoples consciousness of community is faint. They especially lack the understanding of community building and it is still insufficient for them to participate in the communitys affairs. (4) Functional demand is unclear in community management and it has caused incongruous work both on horizo

26、ntal and vertical level. Communities at the basic level are directed by relevant administrative departments. They put their energy and material resources into their own work only but fail to cooperate and coordinate with each other. Therefore, it has led to the scattering of strength. (5) Community

27、 resident committees still have the tendency of administration in their self-building and carrying out of their work, so there is still a long way for them to go to be real autonomy. (6) The functions of social public management and public service are not given a full play and the infrastructure do

28、es not form a complete set. The problems of inferior service function, the unreasonable overall arrangement in the site and incomplete handy service for the people still exist generally. Some above-mentioned problems have already become the obstacles for the development of urban community managem

29、ent of China. 3 Countermeasures for urban community management development of China The central government has set corresponding goals for urban community management as the follows. (1) Meeting the needs of urban modernization, strengthening the construction of party and residents autonomy organ

30、izations in communities, setting up new-type communities based on an emotion tie and structuring a new community organization system; (2) Regarding the community service expansion as the tap, promoting community service networking and industrialization in order to satisfy the increasing material an

31、d culture demands of community residents constantly; (3) Reforming urban management system at the basic level, setting up the community management system and operating mechanism in conformity with socialist market economy system; (4) Insisting the combination of government’s guidance and participa

32、tion of the society, giving full play to communitys strength, disposing community resources rationally, improving the whole quality of the community residents and civilization degree of the community. Meanwhile, making great efforts to build the new-type modernized community. At the request of abo

33、ve-mentioned goals, suggestions should be put forward to some relevant problems of the development of urban community management in China: 3.1 Operating community according to the principle of democratic autonomy strictly Establish the highest authority- communitys members representative assembly

34、 which is elected directly by all residents of the community. It is a policy-making body of dealing with communitys great affairs and has the decision and supervision function. Produce the director and members of resident committee of the community by representative assembly via self-recommendation,

35、 democratic recommendation. The resident committee of the community is the organization which carries out communitys concrete affairs , responsible for and supervised by the communitys members representative assembly; Set up consultative organization of the community which is made up by the well-kno

36、wn figures , deputies to the National Peoples Congress , members of the CPPCC National Committee , representatives of units and residents in the community.It could influence the great decisions and management activities through negotiation agenda, democratic supervision and putting forward the opini

37、ons and suggestions; In addition, the community should set up and amplify such several rules and regulations as handling affairs publicly, service promise, examining appraisal through discussion, etc. When the condition is ripe, community autonomy rules should also be made so as to ensure the health

38、y operation of the community autonomy according to the law. 3.2 Perfect the legal system of communitys organizational management (1) Establish the status of legal person of newly-set-up decision organization like community management committee in the form of law and give it corresponding rights an

39、d obligations and delimit a boundary line between the behaviors of it and the government. (2) Provide all kinds of committees or executive bodies of the community with certain power through the regulations and rules, make corresponding functional organizations exercise power of management, examinat

40、ion, supervision, punishment in order to make the community give full play to its effects efficiently. (3) Establish the limits of functions and powers, and inter-reaction of all kinds of organizations in the community through the regulations; and set up the internal and external supervisory system

41、 of working to every organization in order to uphold the interests of most residents. 3.3 Improve the consciousness of self management of community residents The government should respect the legal statuses of such grassroots autonomy organizations as the resident committees, support and ensure th

42、e residents to launch their autonomy activities, lead representatives of residents to discuss the topics that the residents care about and enforce democratic decision-making rights. The important issues related to the construction of residential block should be submitted to resident committees or re

43、sidents meetings to be discussed and carried out in the community. In addition, the government should increase and strengthen the communitys functions and transfer the functions that could be grasped by the communities to them gradually. This will not only strengthen the degree of attentiveness to c

44、ommunitys affairs of community members but also reduce unnecessary burden of the government. 3.4Promote the socialization of community welfare actively and develop the service trade of the community (1) Implement the pluralism of investment subject. Take multi-channel of investment of the country,

45、 collective and personal and set up a development pattern of ownership form of many kinds. (2) Implement the public of the service object. The community service trade should face all community residents and expand the service field, the service range and coverage rate constantly. (3) Implement the

46、 diversification of serving method. Develop the service facility and site of community welfare in a more cost-effective manner and set up the service system of community welfare to meet the multi-levelly, diversified demands of community residents. 3.5 Strengthen the building of contingent of commu

47、nitys management to meet the need of citys modernization In urban communitys construction and management, people are the most crucial element. So, during the process of advancing the reform of the urban community management and structure urban communitys management mode, the construction of the man

48、agement team is essential. At present, the management team of urban community still has greater disparity with the demand for modernized city development in such respects as age composition, culture structure, idea quality, ability of service and coordination, etc. So, on one hand, it is necessary

49、 to strengthen the professional training of existing administrative staff in order to improve their whole quality; while on the other hand, we should adjust community management team constantly through introducing talent so as to ensure the community management in conformity with social economic dev

50、elopment of the city. The above are some corresponding countermeasures put forward to the overall situation of urban community management of China. Consider that the concrete conditions of each city of China are not the same, it is not necessary to require all the cities to set up the same mode of

51、urban community management. Hence, different cities can proceed from their own concrete conditions and take great efforts to explore the community management modes according to their own characteristics. 4 Conclusion Accompanied by the overall and steadily development of social economy in China, c

52、itys modernization level improves constantly. The management of urban communities should become a self-service and self-management mode on the basis of synthesized coordination brought by the government according to the democratic principle. That will be an inexorable trend of the development of urban community management of China in the future. 13