This report adopts a process-oriented definition of community governance. In other words, community governance is a process in which public affairs and public services at the community level are governed through collaboration within networks that consist of at least two of the following five subjects: 1) government organizations, 2) private organizations, 3) social organizations, 4) resident self-governance organizations, and 5) individual residents. In China's post-1978 reform era, transformations at the macro level and governance innovations at the micro-level have often been intertwined. On the one hand, country-wide acceleration of urbanization has contributed to the gradual disintegration of China's traditional rural governance system. On the other hand, existing governance system has become increasingly incompatible with the current needs of communities and unable to adapt to future trends in community development. These two factors suggest the importance of studies on governance innovations that are being developed by various communities. Such studies, in turn, may even offer insights into how to better establish a modern governance system at the macro level in China. 

本报告采用一种过程导向的社区治理定义。换言之，社区治理是指在社区层面，通过由以下五类主体中至少两类构成的网络协作，对公共事务和公共服务进行治理的过程：1）政府组织；2）私人组织；3）社会组织；4）居民自治组织；5）个体居民。在中国1978年改革开放以来的时代中，宏观层面的转型与微观层面的治理创新往往相互交织。一方面，全国范围内城市化进程的加速，推动了中国传统农村治理体系的逐步瓦解。另一方面，现有治理体系与当前社区需求之间的不适应日益加剧，也难以适应社区未来发展的趋势。这两个因素表明，研究各类社区正在探索和发展中的治理创新具有重要意义。此类研究反过来也可能为中国如何在宏观层面更好地建立现代治理体系提供启示。

Drawing on the analyses of close to 100 cases collected by our research team, this report offers a summary of five major forms of Chinese community governance innovations. The main body of this report is, therefore, divided into five parts, each dedicated to one form. The report ends with some brief concluding remarks.  

基于本研究团队收集的近100个案例的分析，本报告总结了中国社区治理创新的五种主要形式。因此，本报告的主体部分分为五个部分，每一部分专门讨论一种形式。报告最后以简要的总结性评论作结。

1. Strengthening cross-departmental collaboration and delegating governance power 加强部门间协同，推动治理力量下沉

This form has emerged in the process of addressing two community governance challenges associated with current compartmentalized structure of the government. Horizontally, it is difficult for various government departments to collaborate. Vertically, communities tend to lack power. 

在现有政府各部门条块分割的体制下，社区治理面临着两大难题。横向上政府部门间协作难度大，纵向上社区的权限和能力不足。为了解决这两个问题，多个地区纷纷尝试改革现有治理体系，建立统一平台协调横向间的各部门，同时加强社区的治理能力。
 

With regard to the horizontal challenge, "Xihaianxinqu shehuizhilizhongxin" (or "Social Governance Center of West Coast New Town" in English) in Qingdao City provides an illustrative case. The center was established in 2014, integrating individual hotlines of 23 government departments into one hotline under the name of "Yihaotong 6712345" (or "One number for all 6712345" in English). The center is in charge of guiding and coordinating tasks related to town-wide social governance. Therefore, its main responsibilities include communicating decisions made by its higher authorities, managing potential problems and public complaints, and evaluating task implementation. 

例如为了统筹社会治理工作，改变原先令出多门、缺乏统一领导的局面，青岛市于2014年成立了工委直属的正处级事业单位“西海岸新区社会治理中心”。新区整合23条部门热线归并为“一号通6712345”，成立公众投诉受理处置指挥中心，与社会治理中心合署办公。主要职能是贯彻实施工委管委社会治理各项决策部署，统筹指导全区社会治理工作，受理、转办网格各类问题隐患和公众投诉事项，并对处置情况全程跟踪、督查、考核。

With respect to the vertical challenge, a working mechanism in Jinhaihu Town of Pinggu District of Beijing City serves as a good example. The mechanism is dubbed "Xiangzhenchuishao, Bumenbaodao", meaning that once a village or a town said it, a government department heard it. This immediate response mechanism was devised in 2017 in the process of addressing the problem of illegal gold mining in Pinggu District. The mechanism required that a government department must send relevant personnel to the scene of a reported case within 30 minutes. Consolidated by effective case-by-case evaluation, the mechanism has successfully eradicated illegal gold mining in the district. Then, Pinggu District Government applied this mechanism to the governance of other pressing issues (e.g., construction of unapproved project, damage to ecosystem, and work safety), which in turn have all yielded positive results. Noteworthy is that Beijing municipal party committee has adopted this mechanism and delegated governance power even further to the village level. 

又例如北京市平谷区金海湖镇在治理金矿盗采过程中，摸索出的“乡镇吹哨、部门报到”工作机制。虽然区政府长期以来不断增加人力物力实施跨部门联合行动，但由于职责不清，往往各部门联而不合。2017年，平谷区在一次专项行动中提出将执法主导权下放到乡镇。乡镇发现盗采线索要及时上报，各相关执法部门必须30分钟内赶到现场综合执法，不报到就问责，执法效果一次一考核。这种做法有效根治了金海湖镇盗挖盗采的违法行为。随后平谷区将这项工作机制运用于解决违章违建、生态破坏、安全生产等重点、难点工作，取得了良好的成效。在提炼“平谷模式”和其他各区大量典型经验的基础上，北京市委将其总结提升为“街乡吹哨、部门报到”工作机制。此举使得城市的多个管理力量在街乡综合下沉、力量聚合，形成了权责清晰、条块联动的体制机制。

2. Promoting the participation of social forces in community governance 推动社会力量积极参与

This second form of community governance innovation has emerged in the context of a key trend in public services at the community level, namely the rapid growth in and diversification of residents' needs in this regard. In the traditional governance system, public services at the community level were provided mainly by subdistrict government in urban China and township government in rural China. However, local governments have found it increasingly challenging to adapt to the trend financially and professionally. A consensus, therefore, has been reached that social forces need to be incorporated into community governance. 

这些治理创新案例的另一典型特征是推动社会力量的广泛参与。在原有的治理模式下，社区一级的公共服务主要由街道、乡镇提供。随着社会的经济，有限的政府财政预算无力无限支撑越发广泛和多样的居民需求。此外，社区治理越发要求专业化的力量各司其职，数量有限的社区工作人员已无法提供面面俱到的公共服务。在这个大背景下，吸引社会资源积极参与社区治理成为了共识。

One case is that Shanghai municipal party committee and Shanghai municipal government have attempted to create a conducive environment for such incorporation by encouraging subdistricts and towns to establish community foundations. Compared with other types of foundations, community foundations have two strengths. First, they tend to focus more on community affairs with their professional expertise. For instance, Community Foundation of Yangjing Subdistrict has provided services targeting the needs of a wide range of age groups (e.g., children, high school students, and seniors). Second, community foundations tend to create more opportunities for community residents to participate in the governance of community projects. As an important source of funds for community foundations, community residents are entitled to participate in the decision-making process and evaluation process of specific community projects.  

例如，上海市委、市政府鼓励街道、乡镇探索设立社区发展基金，为社会资金支持社会力量参与社区治理创造条件。与通常的基金会相比，社区发展基金的专业化程度更高，聚焦于社区的相关事务。上海市洋泾街道的洋泾社区基金会既推出了面向老年人的全家福拍摄项目，也有针对社区儿童推出的洋泾社区图书馆义工伴读服务，还有面向社区中学生的社区公益挑战赛，以及全民可参与的社区公益集市，在政府扶贫帮困的基础上更贴合时代地服务社区居民，可谓“无孔不入”。社区基金会和普通基金会还有一个很大的区别，社区居民是重要的募捐力量。社区捐赠人具有全权决定权，由其投票通过的项目才有资格进入下一轮的专家评审会。而当项目通过评审进入实施阶段，社区捐赠人将再次被邀请实地进行考察和评估。

Another case is that Nanshan District Government in Shenzhen City has attempted to shift its role from public service provider to public service purchaser. In 2013 the government spent 780 million RMB on more than 20 public services provided by 148 social organizations. The expense accounted for 9 percent of the whole district government expenditure that year, and the purchased services included but were not limited to public education, training and employment, culture and sports, public transport, social welfare, and public safety. Furthermore, the district government has supported and guided more than 1,700 social organizations to participate in community public service provision. Now Nanshan District Government is no longer the sole provider of community public services. Instead, it serves as an agent linking and integrating various social forces and resources in this regard. It deserves mentioning though that purchase of public services does not mean deregulation in this case. Rather, the district government inspects and assesses to what extent the purchased services have met the needs of community residents. 

又例如，深圳市南山区探索公共服务供给由政府提供向政府购买的转变。在2013年时，南山区政府就已经从148个社会组织购买二十多项公共服务，投资7.8亿元，占该区民生财政总支出的9%，涵盖公共教育、就业和培训、文化体育、公共交通、福利和安全等多方面。区政府还积极支持和引导超过1700多个社会组织参与社区公共服务。在南山区，政府不再是提供社区公共服务的唯一主体，而是整合多种社会力量和资源的平台、节点。南山区政府购买服务不意味着撒手不管，作为社区公共服务制度化的最后一环，区政府还需对公共服务是否真正满足社区居民的实际需求进行监督和评估。

3. Activating communities' vitality and reforming community culture 激发社区活力，重塑社区文化

The third form of Chinese community governance innovation has taken shape in the process of addressing communities' lack of cohesion and residents' indifference to community affairs.   

进行社区治理创新的另一大着力点在于激发社区活力，重塑社区文化。现阶段，社区所缺失的不仅仅是实质上的设施或服务，社区缺乏凝聚力和活力，居民对社区事务的冷感，是社区治理必须解决的另一大难题。

In the case of Hesilu Village of Chengxijiedao of Yiwu City in Zhejiang Province, a rural governance innovation project by the name of "Gongdeyinhang" (or "Bank of Merit" in English) has effectively promoted moral values and reconstructed family-like relations among villagers. Each villager has an account in the Bank, keeping a record of his/her good words and deeds as claimed by oneself or by others. Such claims can also be filed retroactively. The record is then reverted to points according to certain pre-set criteria. All villagers' points are published in the form of quarterly report, a document that functions as an important criterion for bank loan application and homestead allocation. Assessment of points are conducted by four parties, namely Village Party Branch Committee, Villagers' Committee, Village Affairs Supervisory Committee, and Voluntary Representatives of Villagers. Information regarding this assessment can be retrieved from Villagers' Committee. The villager accumulating the highest points within a year is recognized as "Outstanding Contributor of the Year", thus becoming a moral exemplar in the village. 

例如浙江省义乌市何斯路村首创的“功德银行”就很好地提升了社区的精神面貌。功德银行给每位村民设置一个账户，通过个人申报、他人报告和事后补录等途径，将村民的善言、善行、善举记录在册，按照相关标准积分，一季度一公布，作为银行贷款、宅基地分配的重要依据。积分评议由村党支部委员会、村民委员会、村务监督委员会成员和村义工代表共同参与，所有事项均可以到村委会查找，将年度得分最高者评为突出贡献者，号召村民向其学习。功德银行充分发挥了道德的教化作用，重塑了乡里乡亲浓郁的乡情乡谊。

In the case of Tiancun Street Compound 40 of Haidian District of Beijing City, the compound has transformed its worn bicycle shed into a culture courtyard (i.e., a public space for all residents to enjoy and participate in cultural activities). The courtyard has contributed to the formation of eight culture-themed groups such as choral group, dance group, and knitting group. Activities associated with these groups have, in turn, improved community cohesion and fostered a culture marked by harmony and community engagement.

又例如在北京市海淀区田村路的阜四小院，社区将原有旧自行车棚改造成文化小院，作为社区居民家门口的文化活动场所。在此基础上，社区培育了合唱队、魅力四射舞蹈队、巧娘编织组等八支不同主旨的活动组织。各项公益活动和文娱活动的开展大大激发了社区居民的热情，促进了社区和睦、融洽的气氛的形成，也对营造和谐的社区文化起到了推动作用。

4. Incorporating migrant population into urban community governance 纳入数量庞大的外来人口

The fourth form of Chinese community governance innovation has developed in tandem with the massive flow of villagers into urban China in the reform era. Although this flow has brought labor force to cities, it has also brought certain governance challenges associated with the tension between migrant workers and established city residents. In the process of addressing these challenges, local governments have tried various methods to incorporate migrant population into the governance of urban communities where they live. 

改革开放以来，中国社会与经济的快速发展加速了农村向城市或城郊地区流动。大量外来人口一方面给流入地带来了劳动力，为当地的社会与经济发展做出了贡献，另一方面，难免和本地市民产生摩擦与矛盾，增加了地方政府的治理难度。从根本上来说，要促进社会和谐与稳定，关键在于让外来人员同样成为城乡发展成果的共享者和参与者，让他们的权益得到有效保障。因此，管理好、服务好外来人口，发挥外来人口在城市社区中的积极作用，成为了社区治理创新的重要内容。

One case is from Yangtze River Delta Region where migrant population's outnumbering established urban population is not a rare phenomenon. In Cixi, a county-level city of Ningbo City in Zhejiang Province, migrant population is 1.07 million, slightly more than that of established residents with Cixi Hukou. In the past decade, Cixi City witnessed around 600 conflicts between these two types of residents over some hot-button issues (e.g., employment, neighborhood relations, debts, and traffic accidents) every year. The city started a pilot program under the name of "Hexiecujinhui" (or "Harmony Promotion Association" in English) in two villages, aiming at effective management of such conflicts. While the village party branch secretary served as chair of the two associations respectively, a migrant worker served along the secretary as vice chair. Each village was further divided into wards based on demographic distribution, and ward leaders were selected from nominated members of the association in that village. This pilot program was then introduced to 504 service stations Cixi-wide, incorporating migrant people further into the governance of public services related to education and training, employment, and enrolment of children in schools.  

例如，随着“长三角”城市群快速发展，外来人口数量超过本地人口的“倒挂”现象已不是个例。浙江省宁波市下辖的慈溪市外来人口达到107万人，已经超过本地户籍人口的105万人。十来年前，每年仅劳务、邻里、债务及交通事故等纠纷多达五六百起。为了解决这些问题，2006年4月慈溪两个村试点成立“和谐促进会”。会长由村党支部（总支）书记兼任，副会长则由一名优秀外来务工人员担任，同时根据人口居住分布情况划分片区，推选会员中积极分子担任组长，分管矛盾纠纷调解、社会治安排查等工作。从2015年开始，慈溪市陆续在全市建立504个需求服务站，进一步推动村级“和谐促进会”向社会服务组织转型，开展教育培训、劳动就业、子女入学、信息沟通、组织活动等项目。

Local governments at Pearl River Delta Region have also adopted creative measures to incorporate migrant people into community governance. Sanyuanlijiedao, a subdistrict of Guangzhou City, provides an illustrative case. There are 103,000 residents in the subdistrict, but 56,000 are from migrant population. Hence, the majority of the residents are not established ones. Now each of the thirteen communities in Sanyuanlijiedao has included migrant people in the governance of communities where they reside now. This inclusion is achieved by the establishment of "Yishihui" (or "Deliberation Hall" in English). Among the thirteen members of a specific "Yishihui", it is required that six are from established residents, six from new residents, and one from subdistrict office. A decision is reached when two thirds of the thirteen members vote for a motion, and the decision is then implemented by neighborhood committee. On the platform of "Yishihui", migrant people have started to govern community affairs with established residents. 

珠三角地区作为外来人口聚集的另一大区域，同样实施了各种举措使得外来人口更好地参与社区治理。例如，广州市三元里街道有着中国最早的一批城中村，目前10.3万的常住人口中外来人口达到5.6万人，人口倒挂现象突出。三元里街道下辖的13个社区都成立了议事会，每个议事会的13名代表由6名本地居民、6名来穗人员和1名街道工作人员组成，形成决定需三分之二以上赞成票，然后交给居委会落实。外来人口第一次和本地人代表围坐一桌，共同讨论解决社区问题。让外来人员更好融入城市、共享发展，还需要消除外来人口与户籍人口在医疗、教育等公共服务领域的待遇差别。为解决数万洪湖市外来务工人员的就医报销问题，三元里街道办与洪湖市协商把广州两家医院纳入洪湖新农合定点医疗机构，参保人可在广州直接报销。这些举措逐渐将“共治共享无异客，此心安处是吾乡”变成了现实。

It deserves mentioning that "Yishihui" has further led to another governance innovation: healthcare reimbursement for thousands of migrant workers from Honghu, a county-level city of Jingzhou City in Hubei Province. Sanyuanlijiedao subdistrict office and Honghu municipal government have agreed to include two hospitals in Guangzhou City in the network of medical institutions covered by the new rural cooperative medical insurance. This means that an insured migrant worker from Honghu City can receive reimbursement for his/her medical treatment incurred in Guangzhou City right at the place of his/her work. 

值得一提的是，“议事会”进一步催生了另一项治理创新：为来自湖北省荆州市下辖县级市洪湖市的数千名农民工提供医疗报销服务。三元里街道办事处与洪湖市政府达成协议，将广州市的两家医院纳入新型农村合作医疗保险覆盖的医疗机构网络。这意味着，来自洪湖市的参保农民工可以在其务工所在地广州，直接报销其在广州产生的医疗费用。

5. Building communities' capacity for public services 增强社区的公共服务能力

The fifth and final form of community governance innovation has emerged in the context of diversified composition of resident population and diversified needs of residents. The traditional management-oriented governance system can no longer adapt to such diversification. Therefore, many communities have attempted to develop their own capacity to meet their residents' needs.

随着社区居民的多元化，居民需求日益多元化，社区事务越发细腻而繁杂，延续自计划经济时代，主要以管理为目的的治理体系已无法适应新时代的需求。如何使得社区治理如何更好贴合居民需求，成为了诸多社区探索的目标。

Yihai Compound of Changsha City in Hunan Province offers an illustrative case in this regard.  In order to answer residents' request for improving compound cultural environment, a library was established under the theme of "Gongxiangyibenshu, Zhongchouyizuotushuguan" – meaning "sharing a book with one another, building a library together". The compound library practices an inclusive and free book borrowing system. In other words, anyone living in or out of the compound can borrow books without charge as long as he/she donates books to the library. This library has in turn played an important role in developing a sense of community and social cohesion among residents who live in separate high rises within the same compound.

例如，为了提升社区的人文景观和文化氛围，湖南省长沙市的怡海社区建立了共享图书馆，图书馆围绕“共享一本书，众筹一座图书馆”的主题，要求只要向共享图书馆捐赠书籍的居民均可免费办理借阅证，不收取任何押金，图书馆的所有书籍均是由辖区居民捐赠。将各自闲置资源的作用充分发挥。通过共同阅读也大大提高了邻里之间的交流，促进了邻里和谐消除社区邻里陌生感，提升居民对社区的归属感和认同感，使高楼里也有了浓浓的人情味。

In the case of Luocheng Compound of Xuhui District of Shanghai City, "Weigaizao" (i.e., redevelopment without large-scale demolition or reconstruction) was adopted by realty management to address the challenge of limited parking space in the compound. Through effective communication, residents have agreed to remove their own parking barriers. In addition, existing parking space has been rearranged so that more than 70 extra parking spots are created. These two methods have in turn satisfied residents’ needs for secure and sufficient parking space.    

提升社区公共服务能力不意味着硬件场所的大拆大建，也不一定需要大量的额外资源。相反，投入较少却效果颇佳的“微改造”被越来越多的社区所接受并采纳。例如停车位数量不足是几乎所有小区都面临的难题。上海市徐汇区的罗城居民区是集商品房、售后公房、原拆原还动迁房于一体的老式混合型社区，小区总人口三千余人。在上海市“五违四必”综合整治工作全力推进的背景下，罗城小区决定将拆除地锁作为整治工作的重中之重。但是仅仅拆除地锁并不能治本，罗城小区同时还进行小区停车位的扩充与改造。小区将原先的横停车位改造成斜停，原本只能停两辆车的空间就可以停三辆，这样就多了70多个车位。物业承诺严查外来车辆，绝大多数业主在听到这一系列解决方案后，都放下心来，自愿拆除了地锁。

6. Concluding remarks 结语

This report summarizes five major forms of Chinese community governance innovation. Nonetheless, this summary cannot cover all innovations that have emerged throughout China. It is hoped that these five forms may serve as a springboard for policymakers, practitioners, scholars, and other stakeholders to further explore Chinese community governance innovation.   

中国各地区之间在自然、社会、经济等方面存在着极大的差异性，各基层社区在实践中基于自身的环境和条件，探索出了因地制宜的社区治理有效形式。本报告归纳和总结了这些案例的共同性，并呈现给各位读者。当然，本报告所总结的这五大主要形式远远不能完全涵盖各社区极富创造力的探索。我们希望以此作为一个起点，专家或学者能够深入分析案例的差异性以及该案例之所以成功的独特背景和原因，社区人员能够积极大胆地吸取案例中值得借鉴的内容，进一步探索治理创新。