摘要

改革开放以来，我国所有制结构发生根本改变，经济发展速度和质量都得到了极大提升。随之而来的是“单位制”基层管理体制的瓦解和公民对公共服务越来越品质化、多元化、复杂化的需求，为了应对基层社会治理发生的新变化，近年来我国关于社区公共服务供给的实践探索不断丰富和创新，但城市社区公共服务供给碎片化问题依然普遍存在。

鉴于此，本文在梳理相关文献的基础上，陈述了何为“城市社区公共服务供给碎片化”，归纳了由此产生的城市社区公共服务供给碎片化的表现、影响，主要表现为供给责任碎片化、合作方式碎片化、信息沟通碎片化和供给流程碎片化四个方面，其主要影响包括公共服务质量不高、效率低下、基层治理模式失灵、基层服务型政府建设进程受阻等，而后从新公共服务理论视角和整体性治理视角出发，进一步探究“城市社区公共服务碎片化”现象出现的原因，包括主体服务意识不强、主体职责不清、财权事权不匹、供给侧结构矛盾四个方面，并相对应提出治理路径：第一，建设服务型政府，强化服务意识；第二，整合社区资源，探索协同治理；第三，供给侧结构改革，转变服务思路；第四，引导基层自治，探索多元共治。

关键词：城市社区；公共服务供给；碎片化；整体性治理

Abstract

Since the implementation of the reform and opening-up policy,not only the ownership structure has changed fundamentally,but also the speed and quality of economic development have been greatly improved in China. The disintegration of the "unit system" management system at the grass-roots level and increasing demands of citizens in qualified,diversified and complicated public service are generated . In response to the new changes of social governance at the grassroots level in our country,the practice and exploration of community public service supply constantly enrich and innovate recently.Though many measures have been taken,the urban community public service supply fragmentation problem is still widespread.

In view of this problem, this paper presents what is "urban community public service supply fragmentation" and summarizes the performance and influence of the fragmented urban community public service supply on the basis of combing the literature.This problem express mainly in four aspects which include supply responsibility fragmentation, cooperation way fragmentation,information exchange fragmentationand supply process fragments, and its main effects include low public service quality , low efficiency, grassroots governance failure and obstacle in the construction of service government process etc. And then from perspective of new public service theory and holistic governance perspective, this paper further explores the reasons for the phenomenon of "fragmentation of urban community public services" which includes the weak service consciousness of the subject, unclear responsibility of the subject,the imbalance of financial and administrative rights and the structural contradiction of the supply side. At last, this paper proposes corresponding governance approaches: firstly,build a service-oriented government and strengthen the service consciousness; Secondly, integrate community resources and explore collaborative governance; Thirdly, reform the supply-side structure and change the way of thinking about services; Fourthly, guide community-level autonomy govern by themselves and explore diversified ways to govern.

Key words: Urban community;Provision of public services; Fragmentation; Holistic governance