街道办事处作为市辖区或不设区的市的派出机关,在我国已经存续了近 60 年。在 此期间,街道办事处在我国城市的发展中发挥着举足轻重的作用。我国的城市管理体制 也一直是“市——区——街——居”模式。在这种模式下,街道办事处名义上不享有一 级政府的权力,而实际上却行使着政府的职能,可谓“名不副实”。随着城市化进程的 加速,城市基层管理问题层出不穷,城市管理重心逐步下移成为趋势,而街道办事处越 来越难以适应和胜任城市有效治理的需要。与此同时,街道办事处作为基层管理组织, 自身的管理问题也日益突出。在此背景下,撤销街道办事处,减少城市管理层级,实现 政府与大社区的直接对接,已成为未来城市管理的改革方向。更主要的是,无论从理论 上、法理上,还是从实践基础上来看,撤销街道办事处、建立大社区管理模式,目前也 具有可行性。但是,就目前中国城市管理的现状来看,立即全面撤销街道办事处的条件 还不够成熟,还存在许多问题。我们必须从转变政府职能、培育社区组织、实现社区自 治和具体的操作方法上下功夫、想办法,以促进街道办事处管理体制改革的顺利推进。 同时,由于我国各地差异较大,城市经济与社会发展极不平衡,各地城市管理面临的任 务与形势也不完全一致,应当鼓励条件具备的地方进行探索与试验,以便总结其实践的 经验与教训,少走弯路。 本文在综合相关学者对街道办事处管理体制的演变、存在的问题、改革的建议等方 面研究的基础上,对街道办事处的发展脉络进行了梳理,分析了当前街道管理体制下出 现的各种体制性问题和自身管理中存在的问题,总结和比较了当前街道办事处体制改革 的各种模式,重点研究了撤销街道办事处的必要性、可行性、困境和破解思路,力求为 我国的街道办事处管理体制的改革,提供理论支撑与政策建议。 关键词:街道办事处;撤销;大社区;可行性 II Abstract Sub-district offices have been agencies of municipal districts and cities not divided into districts for 60 years in China. Meanwhile, Sub-district offices play an important role in city’s developments. China's urban management system has also been a City - District - Street - Home mode. In this mode, Sub-district offices are not entitled to a nominal power of government, but in fact exercise the functions of government, described as a misnomer. With the acceleration of urbanization, there are a lot of problems in urban management, the focal point of urban management gradually become downward, while the Sub-district offices have increasingly difficult to adapt to the needs of effective governance. Meanwhile, as grassroots management organizations, the problems of the sub-district offices management are also increasingly prominent. In this context, revoking of sub-district offices, reducing the level of urban management, achieving the government's direct docking with large communities, have become the future direction of reform. More importantly, revoking district offices, establishing a larger community management model, are feasible from theory、practice and legislation . However, from current status of China's urban management, it is not reasonable to revoke the sub-district offices immediately and there are still many problems. To promote neighborhood offices manage the smooth progress of reform, we must transform government functions, foster community organizations, achieve self-government and focus on community-specific methods of operation Meanwhile, there are quite different all over the country, different cities have different economic and social development, they also face different tasks and situations in urban management, so it should be encourage to explore and experiment to summarize the experience and lessons in practice, avoiding unnecessary waste. Based on the comprehensive relevant scholars on evolution, problems, and other aspects of the proposed reforms of Sub-district offices management system, the author cards the development of sub-district offices, points various institutional issues and problems in management, summarizes and compares the current various modes of Sub-district offices, focuses on the necessity, feasibility, difficulties and crack ideas on revocation of the Sub-district offices, to provide theoretical support and policy advice China's Sub-district III offices management system reform. Keywords: Sub-district offices; revoke; large community; feasibility IV 目 录 摘要...........................................................................................................................................................I Abstract.......................................................................................................................................................II 第一章 导论................................................................................................................................................1 一、选题背景和意义....................................................................................................................1 (一)背景....................................................................................................................................1 (二)意义....................................................................................................................................1 二、相关研究综述........................................................................................................................2 (一)关于街道办事处管理体制微调的研究............................................................................2 (二)关于街道办事处定位研究................................................................................................2 三、研究内容和方法....................................................................................................................4 (一)研究内容............................................................................................................................4 (二)研究方法............................................................................................................................4 四、创新之处................................................................................................................................5 第二章 街道办事处管理体制概述............................................................................................................6 一、街道办事处的历史沿革........................................................................................................6 二、街道办事处的组织结构........................................................................................................7 三、街道办事处管理体制中存在的问题....................................................................................7 (一)城市基层政府面临的管理服务的新形势........................................................................7 (二)“区——街”体制下的问题..............................................................................................8 (三)“街——居”体制下的问题..............................................................................................8 (四)街道办事处自身管理中的问题......................................................................................10 第三章 街道办事处管理体制改革模式分析........................................................................................11 一、“三级政府、三级管理”............................................................................................................11 二、“两级政府、三级管理”............................................................................................................11 三、“两级政府、两级管理”............................................................................................................12 四、撤销街道办事处,建立大社区..................................................................................................13 (一)撤销街道办事处的意义..................................................................................................13 (二)建立大社区......................................................................................................................13 第四章 撤销街道办事处的可行性研究..................................................................................................18 一、可行性分析..................................................................................................................................18 (一)理论依据..........................................................................................................................18 (二)法律依据..........................................................................................................................22 (三)实践探索..........................................................................................................................23 二、制约因素......................................................................................................................................25 (一)行政权上移......................................................................................................................25 (二)自治权下沉......................................................................................................................26 (三)市场剥离..........................................................................................................................26 (四)现实阻力..........................................................................................................................27 三、破解思路......................................................................................................................................27 (一)转变政府职能..................................................................................................................27 (二)实现社区自治..................................................................................................................29 (三)培育社会组织..................................................................................................................31 V (四)操作层面的建议..............................................................................................................32 结 语........................................................................................................................................................33