Investigation and thinking on perfecting the community management and service network in our city
I am based on the "Municipal Social Science Association? 2007? Document No.3, from April 18 to June 28, 2007, conducted an in-depth investigation on the construction of community management and service network in the whole city by visiting management departments, subordinate units and community organizations for more than two months. The present situation, main problems and countermeasures of the community management service network in our city are as follows:
First, the status quo of community management and service network construction in our city
In recent years, the goal of community construction in our city is "orderly management, perfect service, good public order, convenient life and harmonious interpersonal relationship". The construction of community management and service network has achieved remarkable results, and the level of community service has been continuously improved, gradually forming a new development situation with distinctive characteristics, rich content and perfect facilities.
(1) The community infrastructure has been gradually improved, and the field of community services has been significantly expanded. The community service in our city has basically covered many fields such as community home care for the aged, community safety, health, education, public security, informationization, convenience and benefit for the people, and the facilities are improving day by day. There are 284 communities in the city, with 2408 convenience service outlets and various facilities, and the average office and service area of communities reaches 150m2. At present, 64 community service centers (stations), 249 community health service stations, 97 community police offices, 67 community volunteer service stations and 103 community consumption supervision liaison station have been established. There are 183 physical fitness paths, 47 community libraries and 174 new community cultural squares. Every year, 3,000 community jobs are developed, and since 2002, more than 50,000 people have been re-employed. We will comprehensively carry out the pilot work of community home-based care for the elderly, and there are 66 community welfare service facilities for the elderly. Actively promote the one-stop service mode of "entering a door, connecting a hundred lines, connecting a thousand, and solving all difficulties", and Wuxing District has established 10 community one-stop service centers.
(2) Community management was promoted in an orderly manner, and the level of residents' autonomy was significantly improved. In the process of promoting community construction, our city closely focuses on building a harmonious community, guaranteeing the exercise of democratic autonomy rights in the community according to law, and constantly improving the democratic mechanism. First, the democratic election mechanism has been further improved. The city's community neighborhood committees actively carry out the work of "direct election by public recommendation" and "two proposals and one election" by party organizations. The rate of community direct election in the whole city exceeds 10%, of which Wuxing District exceeds 20%. "Universal suffrage" and "two elections" reached 50% and 100% respectively, and the participation rate of residents reached over 90%, ensuring that residents enjoyed the right to vote. Second, the democratic decision-making mechanism has been further standardized. We will fully implement the community residents' hearing system, and hold democratic hearings on issues involving the vital interests of residents and the concerns of the masses. Various forms and carriers of democratic decision-making with community democratic hearing as the main form are constantly enriched. Third, the supervision and restriction mechanism has been further improved. In accordance with the requirements of village affairs openness and democratic management, counties and districts have formulated the Implementation Opinions on Perfecting the Practice of Village Affairs Openness and Democratic Management, and the community has fully implemented the "three openness of village affairs, finance and affairs" to improve the transparency of community operation. The streets of Wuxing District have also established a mechanism of "evaluating the lower level and evaluating the upper level", and formulated a system of debriefing and democratic evaluation for community workers. The gains and losses of community work are evaluated by residents, ensuring residents' right to know and supervise. Fourth, the community authority is further clarified. We will fully implement the access system for community work declaration and carry out the "three cleanups" of community institutions, brands and tasks. On average, more than 10 institutions and more than 10 brands were cancelled in each community, and three brands were put up in all communities, so as to effectively reduce the burden on communities, correct and prevent the tendency of community administration, make communities change from control to autonomy, from management to service, and realize the return of community autonomy.
(3) The community service network has been continuously improved, and the information service level has been significantly improved. Based on building an information platform and taking the community service hotline as the carrier, our city has solidly promoted the construction of community informatization. Since 2005, the Civil Affairs Office, the Information Office, the Family Planning Commission and the labor and social security departments have cooperated with each other to effectively integrate community resources. * * * Invested more than 2 million yuan to develop community information management systems at all levels of cities, districts, streets and communities. At present, the informatization of Wuxing District has been fully completed, and a four-level networked community information service management system has been initially formed. Combined with their own reality, the three counties established a community service website in the central town, which provided a good service platform for the convenience of residents. This year, Wuxing District cooperated with the Municipal Telecommunications Bureau to open the "222 1890" community service hotline by using the service platform of 1 14. The service hotline takes residents' needs as the core, comprehensively integrates community service agencies, social service enterprises, merchants and other convenience service resources, and creates a "15 minute community convenience service circle" to provide all-round convenience information services for urban and rural community residents. At present, the hotline platform has collected nearly 50,000 pieces of service information, covering 20 categories such as ordering food, recruitment, home appliance repair, on-site service, education and training. Since the service hotline was opened in May this year, it has provided more than 780 service demands for community residents, and the satisfaction rate of residents has reached over 98%.
(4) Government investment has increased year by year, and the community service guarantee mechanism has been gradually improved. In order to speed up the construction of community service capacity, party committees and governments at all levels have strengthened their protection and introduced corresponding policies and measures, especially in terms of capital investment and perfect facilities. Since 2002, urban finance has invested 3 million yuan every year to transform community infrastructure. At present, Wuxing District allocates funds and allowances for community workers according to the standard of 3,500 yuan per 100 households per year. On this basis, since 2005, the salary of community workers in Wuxing District has been increased by 200 yuan every month, and the five insurances for community workers have been fully implemented this year. All counties and districts have implemented special funds for community services and vigorously promoted community construction. For example, Deqing county's financial investment100000 yuan is used for the transformation of community infrastructure. At the same time, the government will incorporate community service construction projects into the overall urban planning, and the land department will give priority to the examination and approval of community service welfare projects, exempting related fees; Finance and taxation, banks give tax relief and preferential credit support to community services, and water and electricity services are charged according to the lighting electricity price and water fee price of public welfare community service institutions.
5. gradually improve the characteristics of community service? The effect of feature creation is increasingly prominent. Around the construction of a harmonious community, according to the requirements of "one street, one product, one society and one specialty" and improving service, some communities in our city comprehensively analyzed the overall situation of residents in this community, and carried out special services according to the needs of the vast majority of residents, and achieved good results. For example, Baiyutan community has developed a six-in-one community health service and passed the ISO900 1 community service quality certification. Bibo Bilang Community implements intelligent community services according to the fact that most residents are senior intellectuals. Because there are many middle-aged and elderly people in the community, Hongfeng 45 community implements the characteristic service of home-based care for the elderly; Influenced by Wang Fajin, Wenyuan No.1 Community implemented the Wang Fajin Police Office. These services have their own characteristics, meet the needs of different groups of people, and have been widely praised.
Two, the main problems of community management and service network construction in our city
Although the city has continuously strengthened the construction of community management and service networks at all levels, there are still some problems to be solved and areas to be improved due to various reasons.
(A) community management responsibilities are not clear enough, compartmentalized, can not form a good resultant force. With the deepening of political and economic system reform, the task of urban grass-roots management services is becoming increasingly heavy. For example, after the reform and restructuring, re-employment, family planning, civilization creation, comprehensive management of social security, urban social assistance system, social insurance system, ideological and moral construction of minors, demolition and other work have all entered the community, and many of them are the affairs of various administrative departments and simply assigned to the community. The problem of "power goes with responsibility and fees go with things" has not been implemented enough.
Streets and communities are the basis and cells of urban management and service, and their work has obvious comprehensive characteristics and should have the function of territorial management. The management service model should be a combination of blocks. However, in community management, the mode of "strip" (department) management is always followed, supplemented by "block" (community) management. All major departments, such as public security, industry and commerce, taxation, housing management, etc. From the department's point of view, accepting the tasks assigned by the department, there are situations such as department steward, community officer, or community management and department benefit, and the separation of responsibilities and rights restricts community integration and coordination.
(2) The infrastructure construction of community management and service is still not ideal. Although the financial investment in community infrastructure construction in our city at all levels exceeds100000 yuan? However, the internal service facilities in the community are mainly for-profit commercial service facilities (about 69%), and the public service facilities of community government (about 6%) and self-help and mutual assistance service facilities are relatively lacking (about 25%), which cannot meet the demand for public services. Only 16 communities have established online service systems, and the degree of community informatization is still lagging behind, which is far from meeting the requirements of community service and management development. The normal development of community service depends on the supply and utilization of service resources. Generally speaking, the resources of community service are composed of material resources and human resources, and capital is an important part of material resources. In developed countries, government investment generally accounts for more than 50% of community service funds. The total investment in community service facilities in our city is insufficient. From the source of funds, it is mainly self-raised funds (about 57%), followed by government financial allocation (about 22%) and * * * construction allocation (about 2 1%). There are only three sources of funds, and the capital structure is not reasonable. It is necessary to increase the government's capital investment in community service facilities to provide more community services. It further reflects the government's attention and concern for community service. In addition, * * * construction funds can be appropriately increased according to the actual situation of * * * units, and * * * construction units should bear corresponding responsibilities in community service.
(3) The openness of units and facilities built in the community is far from meeting the needs of residents and community development. To take the road of socialization, community service must be able to better integrate social resources and gather social forces to run community service. For the community, it is very valuable social and community resources for all kinds of enterprises and institutions to build units in * * * *, and fully opening up and using the facilities built by * * * is an important content of community mutual assistance service. There are 495 communities in our city, of which 435 are involved in community construction. There are still a certain number of residential units that fail to participate in community construction. However, the number of facilities opened by the permanent units participating in the construction of * * * * resources is 65,438+050. The number and degree of facilities opening can't meet the needs of community residents, and there are still a large number of them.
(D) The atmosphere of community NGOs, community residents and volunteers working together to promote community building is not strong.
1, the number of community NGOs is too small. Community non-governmental organizations refer to non-governmental organizations organized by units or individuals in the community individually or jointly to carry out activities in the community to meet the different needs of community residents. There are 295 community non-governmental organizations in our city, with 98 16 registered members, and about 2000 voluntary service activities are carried out every year, with about 35,000 participants. Compared with other cities, the number of community NGOs in our city is too small. There are more than 2,000 community non-governmental organizations in Hangzhou, more than 2,000 in Ningbo, nearly 5,000 in Nanjing, and even more than 200 in Zhangjiagang with a population of less than one million.
2. Residents' sense of community is indifferent. Community consciousness refers to people's strong sense of identity and belonging to the community, and refers to residents' awareness of community publicity, unity, mutual assistance and charity. But at present, residents in our city don't know much about community work, and their enthusiasm and initiative to participate in community construction are not high, and their participation is not universal. Except for some vulnerable groups and difficult groups who rely heavily on the community, most residents have not yet formed a sense of identity and belonging to the community, and lack democratic awareness of residents' autonomy. In particular, some people with work units have not yet completed the transformation from unit people to social people.
3. The participation of community volunteers in community service is not ideal. Community volunteer organization is a comprehensive, professional and autonomous service group composed of people from all walks of life, community workers, teachers, students, residents and professionals from various professional institutions by using their own knowledge, skills, physical fitness and property according to the needs of community development. Through various service work, it is reflected in various social undertakings and provides services and guarantees for social groups and individuals in difficulty. There are more than 30,000 registered volunteers in our city, accounting for 4.2% of the total number of community residents, and have participated in volunteer service for more than 50,000 times. However, a long-term mechanism for community volunteers to participate in community services has not yet been established. Some community volunteer services are carried out under the unified deployment of the government, with a strong administrative color. What can form a long-term mechanism is some service activities mainly based on retirees and community security.
(5) Problems such as small space for community office service activities, few community workers and less funds for community work still affect the function of community management and service.
Under the new situation, there is a big gap between community office service rooms and residents' service demand. Take Wuxing District as an example: at present, the average office area of community service is 160 square meters, and only six communities have reached the new provincial standard (the new provincial standard is 350 square meters), which is worse than the advanced areas (for example, the minimum area of community service in Ningbo is not less than 1000 square meters, and that in Hangzhou and Yiwu is not less than 500 square meters), and the community service space is fragmented and decentralized.
Community workers need to be strengthened. The acceleration of urban community construction and the increase, diversification and complexity of community public demand put forward higher requirements for community workers. At present, community workers in our city have the following problems: First, the number is small. At present, there are 990 community workers in our city, with an average of about 5 in each community, which affects the function of community management and service. Second, the personnel structure is not reasonable, and the number of female workers is too high, accounting for 66.5%; The average age is 40, and the proportion of people under 40 is too low. There is a phenomenon of insufficient internal power and little external power. Third, the quality needs to be further improved. Only about 30% of the community workers with technical secondary school or college education are educated, which is far from the level of professionalism and specialization required by community work. Fourth, the treatment is low. The average annual income of community workers is about 6.5438+0.5 million yuan, even lower than the net income of urban residents in our city in 2006, which leads to the reluctance of high-quality management talents to engage in community work.
Community work lacks funds. With the increase of social affairs, the increase of community operating costs, the downward shift of the focus of government departments, the gradual improvement of community wages and benefits, the improvement of office facilities and other factors, the contradiction of tight community funds has become more and more prominent, which has affected the normal play of community comprehensive functions. Take Wuxing District as an example: there are 9,994,900 yuan of historical debts to be settled in five streets in Wuxing District, with an average annual expenditure of 3 million yuan and financial security of less than 2 million yuan per year; In a medium-sized community, the annual basic office expenses are about 12000- 15000 yuan, and the total expenditure including employee bonuses and benefits is about 32000-35000 yuan. At present, the financial guarantee is 7,000 yuan, and the funding gap is very large. This has caused community leaders to take horizontal coordination and strive for support to raise funds as their important work, resulting in dislocation and dispersion of community workers.
Three, to further improve the city's community management and service network construction.
(A) deepen reform and innovate the community management system
1. Deepen the reform of urban management system and strengthen the functions of street communities. According to the requirements of building an urban community management system with "territorial management, compartmentalization, compartmentalization, clear responsibilities, orderly management and consistent powers and responsibilities", the system of "two-level government, three-level management and four-level network" will be further improved. Urban areas should define the functions and authorities of street communities and give them certain rights of urban construction management, service, coordination, supervision, suggestions and participation. Relevant departments should return, transfer and empower street communities (such as participating in the planning and acceptance of community construction, participating in the supervision and inspection of municipal and environmental sanitation, and making suggestions and supervision on urban administrative law enforcement). ), improve the function of street community, and truly realize the management mode of "block-oriented, block-integrated". Further improve the policy, strictly implement the access system for community affairs and the principle of "fees will be transferred with things", and strive to reduce the burden on the community (in the future, the municipal (county) Civil Affairs Bureau and the district social management office will be responsible for reviewing access, and all working departments will implement work funds).
2. Improve the organizational network and straighten out the community management system. Judging from the existing community management system in our city, the community is a grass-roots organization integrating party affairs, government affairs and community services, with strong administrative color, which is far from the function of community autonomy. It is necessary to explore and innovate in accordance with the requirements of "separation of consultation and employment" and gradually establish a trinity community management system with party organizations as the core of leadership, neighborhood committees as autonomous management organizations and community affairs centers as offices. In accordance with party constitution and the relevant regulations, the Party organization shall be established in the form of "two suggestions and one election" (members of the Party organization and the neighborhood committee cross their posts, and the secretary of the community party organization and the director of the neighborhood committee shall carry out "one shoulder to shoulder") to give play to the core role of leadership; According to the provisions of the organic law of neighborhood committees, community neighborhood committees are democratically elected by residents (their members should include community residents, representatives of units under their jurisdiction, community workers, etc.). ), whose main functions are democratic decision-making, deliberation, reflection of social conditions and public opinion, and supervision of community affairs; As a subordinate institution of the neighborhood committee, the community affairs center mainly undertakes the administrative affairs assigned by the neighborhood committee and the government and provides public services for residents.
3. Reform the way of capital approval and improve the guarantee mechanism. The community office funds are now based on an average of 4,000 yuan per community, and more than 2,000 communities have been approved according to the standard of increasing public funds 1 household and 1 yuan. The original examination and approval method provides the necessary guarantee for solving the necessary public expenditure of the community, which is more reasonable when the fund base is relatively low. However, with the continuous expansion of community scale and the improvement of community office funding base, its irrationality has gradually emerged.
We should consider reforming the original examination and approval methods from the following two aspects: ① Change the unreasonable phenomenon that the community size is different, but the funds are basically the same. The proportion of community size is 10 times, but the funds are basically the same. From the actual situation of management and operation, the capital expenditure of large communities should increase substantially. Therefore, it is suggested that the community public funds should be approved based on the community size, with due consideration to the base (that is, the base of each community is 2,000 yuan, and the scale should be approved according to the standard of each household in 4 yuan, with due consideration to the small number of community residents but heavy workload in Wuxing District). The number of households in the community scale shall be subject to the number of residential houses, and the old community shall refer to the regular households appropriately. (2) Encourage the streets to adjust the community size setting and change the phenomenon that the community size is too small. Take Wuxing District as an example: there are 1.290 households in each community in the whole district, of which only 4 are more than 2,000 households, and 2 are less than 1 household, with a maximum of 3,400 households and a minimum of 265 households. Should be in accordance with the requirements of "convenient service management, convenient rational allocation of community resources and convenient community residents' autonomy"; Give full consideration to factors such as reasonable positioning, moderate scale, complete functions and satisfying residents' sense of identity; In line with the principle of not making a one-size-fits-all approach, the largest one is the largest one, and the largest one is the largest one, and the existing community scale is adjusted reasonably with natural communities as the unit. Based on the actual situation of local community construction, it is adjusted according to the region, living scale and work tasks (the size of old communities is generally around 1500-2000, and the number of new communities is around 3000). This can solve the problem of uneven community office funds to a certain extent, but also solve the problems of scattered community resources, too small office space and incomplete service facilities, which can be said to be multifaceted.
(two) to strengthen the construction of community service infrastructure and network, encourage and support the facilities of units in the area to open to community residents.
1, accelerate the construction of community infrastructure. Strictly enforce the provincial party Committee? 2007? Document No.64, to speed up the construction of office space in old residential areas, the government will increase capital investment year by year, and strive to make the office service space in old residential areas reach 350 square meters within three years; Office buildings in new residential areas should be equipped with at least 20 square meters per 100 households? Unified planning by the planning and construction department, grasp in place; Increase financial investment in infrastructure construction, upgrade and improve community service centers, focus on building a number of comprehensive community service centers of large scale and high grade, and build comprehensive multi-functional community service centers with an area of 1.500 square meters in urban areas. Continue to increase service outlets, community welfare service facilities for the elderly, community health service stations and per capita office space in the community. It is necessary to basically have service rooms and facilities such as labor security service stations, help and rescue service stations, health and family planning service stations, community (volunteer) service stations, party building (elderly, cultural and sports) activity rooms, reading rooms, etc. It is necessary to actively promote the construction of "one-stop" service centers and business centers in streets and communities to facilitate residents' work and further strengthen community service functions.
2. Accelerate the construction of community service network system. Whether the community service network system is sound or not is the key to realize the comprehensive service function of the community. Create conditions to establish a community service information platform, expand the service network, innovate service means, initially establish an e-government system that is open to the public, complete in structure, convenient, efficient, safe and credible, develop modern office means such as online office, consultation, information disclosure and supervision, open a service hotline, and introduce network management means to further improve the service and management level for the public. Implement the community digital construction scheme and establish the street community network management platform. Establish and improve the city, district (county), street, community four-level community service network, adjust measures to local conditions, take the service needs of community residents as the guide, and vigorously carry out welfare services, convenience services and community mutual assistance services. City, district (county), street community service centers and conditional neighborhood committees shall establish a telephone system for community service residents, explore the establishment of an emergency call system, and realize the information networking of regional and city-wide help services. For example, Beijing 96 156 community service network platform and Ningbo 8 1890 community service network platform can be used for reference.
3. Actively communicate and coordinate with resident units. Based on the principle that * * * is stationed in * * * and enjoys the resources * * *, opening up the facilities resources of community units is a good way to solve the shortage of community service resources, avoid the waste of resources and repeat the construction of facilities, and is conducive to forming a joint force and promoting the socialization process of community services. By strengthening the construction of residents' basic moral quality, establishing the cooperation mechanism of sharing resources and facilities between residents and units, and independently formulating corresponding rules and regulations, the concerns and obstacles of communication and cooperation between units and residents can be completely solved by free or low compensation, so that residents and individuals can benefit from it and develop harmoniously.
(C) innovative mechanisms to improve community management and service capabilities
1. Establish and improve the market-oriented operation mechanism of community services. While leading and promoting, the government constantly innovates the working mechanism and is good at using scientific management and management means. The first is to improve the management mechanism. Actively explore the market-oriented development path of "supporting service with service and promoting career with industry", and transform all kinds of service facilities in counties, districts and streets from simple welfare to welfare management, cultivate the self-development function of community service and create internal development momentum. The second is to improve the funding mechanism. Increase subsidies, support and incentives for community service public welfare projects; Actively encourage the establishment of a number of service entities with a certain scale, such as domestic supermarkets and chain convenience stores. Third, actively introduce market mechanisms and improve service functions. Taking the convenience of the masses as the starting point, we should integrate community resources, promote the industrialization process with the help of social forces, and form a new pattern of the development of community service institutions with various forms of ownership. To meet the requirements of the market economy system, we should introduce and improve a series of preferential policies, attract and encourage relevant government agencies, social intermediary organizations, enterprises and institutions and people from all walks of life to invest in the construction of community service facilities, and develop public, private, joint-stock cooperative, individual and private community service industries.
2. Establish and improve the diversified community service mechanism, and strive to improve the socialization level of community service. Actively play the role of the government, community neighborhood committees, non-governmental organizations, resident units, enterprises and individuals in community service, and encourage and support community residents and social forces to participate in community service. The first is to integrate the offices of various government departments at the grassroots level. Actively promote "one-stop" service and improve the level of providing public services to communities and residents. According to the principle of "power follows responsibility, fees follow things", it is entrusted to community civil organizations and non-profit organizations through the way of "government purchasing services". Second, mobilize and rely on social forces extensively, and take the road of community service and social office. Gradually realize the diversification of community service investment subjects, actively explore development forms such as private assistance, company investment and company management, and vigorously broaden the development channels of community service industry. The third is to integrate community resources and find a market for the society. All kinds of social organizations, units and individuals in the community should be organically combined, fully mobilize the enthusiasm of all parties, rationally use public resources and share benefits. The fourth is to improve the service mode and improve the level of socialized service. We should adopt the method of combining free service with paid service. Paid services are mainly applicable to logistics support services provided by enterprises, institutions, government agencies and organizations within their jurisdiction and convenience services provided by ordinary families. The profit of paid service should make up for the shortage of welfare service funds as much as possible, develop new community service projects and expand the scale of community service.