Strengthening the Leadership of Party Building to Assist Innovation in Community Governance

The report of the 20th National Congress of the CPC clearly states, “Improve the social governance system of joint contribution, joint governance and shared benefits, and enhance the effectiveness of social governance,” and also mentions, “Strengthen Party building work in urban communities, and promote governance at the primary level led by Party building.” The decision of the Third Plenary Session of the 20th Central Committee of the CPC, formally adopted as the “Resolution of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization,” further emphasizes “strengthening Party building to lead primary-level governance.” Primary-level governance is the cornerstone of national governance; the system of the Party’s overall leadership over primary-level governance must be continuously improved. The community is the basic unit of primary-level governance and the “last kilometer” through which the Party and government connect with and serve the masses; the center of gravity of social governance must be shifted downward to urban and rural communities. At present, promoting Party building to lead community governance has become an important choice for innovating the situation of primary-level social governance and enhancing the effectiveness of primary-level governance. Localities are also extensively carrying out relevant exploratory practices, and many innovative experiences of Party building leading community governance have emerged.

党的二十大报告明确提出“健全共建共治共享的社会治理制度，提升社会治理效能”，同时也提到“加强城市社区党建工作，推进以党建引领基层治理”。党的二十届三中全会正式通过的《中共中央关于进一步全面深化改革、推进中国式现代化的决定》进一步强调“加强党建引领基层治理”。基层治理是国家治理的基石，要不断完善党全面领导基层治理制度。社区是基层治理的基本单元，是党和政府联系、服务群众的“最后一公里”，社会治理的重心要向基层下移落到城乡社区。当前，推动党建引领社区治理，已成为创新基层社会治理局面和提升基层治理效能的重要选择，各地也在广泛开展相关探索实践，并涌现出许多党建引领社区治理的创新经验。

Improve the Organizational System and Strengthen Organizational Leadership

完善组织体系 强化组织引领

Community governance relies on the organizational strength of the community to be accomplished; the enhancement of community organizational capacity directly affects the improvement of governance effectiveness. For Party building to lead urban community governance, organizational leadership is the organizational capacity that primary-level Party organizations obtain through organizational structures to lead primary-level governance. Currently, primary-level Party organizations face situations such as weakening, and it is necessary to further improve organizational structures and strengthen organizational leadership. Some localities have issued guiding opinions on Party building leading community governance, which first mention the need to give play to the leading role of community Party organizations. These opinions are conducive to promoting the improvement of the Party’s primary-level organizational structures. Based on field investigations, each community, according to its own population size and number of Party members, as well as the governance problems it currently faces, is gradually promoting the improvement of the relevant organizational system. Party building at the primary level of the organization includes the establishment of community Party branches, the relationship between community Party branches and residents’ committees and residents’ supervision committees, community Party organization deliberation, cross-appointment, and joint building of primary-level Party organizations in the jurisdiction. The establishment of community Party branches generally considers setting up general Party branches and Party branches based on the number of Party members in the community. At the same time, community Party branches need to clarify the division of responsibilities with residents’ committees and residents’ supervision committees, need to establish a system for community Party organizations to discuss important community matters and community funds, and explore the pros and cons of “one person holding two posts” [1]1 “One person holding two posts” (一肩挑) refers to a practice in which the same individual simultaneously serves as the secretary of the community Party branch and the director of the community residents’ committee. and cross-appointment. Improving the primary-level organizational system of the Party and giving play to the role of organizational leadership is conducive to mobilizing the broad participation of more relevant governance subjects.

社区治理需要依靠社区的组织力量来完成，社区组织能力的增强直接影响治理效能的提升。对于党建引领城市社区治理来说，组织引领力是基层党组织通过组织机构获得的引领基层治理的组织能力。当前，基层党组织面临弱化等局面，需要进一步完善组织机构，强化组织引领。有些地方出台了党建引领社区治理的指导意见，最先提到要发挥社区党组织的引领作用。这些意见有利于推动完善党的基层组织机构。从实地调查来看，各个社区根据自身的人口数量和党员数量，以及当前面临的治理问题，逐步推动相关的组织体系完善。党的基层组织建设包括社区党支部设置、社区党支部与居委会及居务监督委员会的关系、社区党组织议事、交叉任职、辖区基层党组织联建等。社区党支部设置一般根据社区党员数量来考虑设置党总支和党支部，同时社区党支部需要明确与居委、居务监督委员会的职责分工，需要建立社区党组织讨论社区重要事项、社区资金制度，以及探索“一肩挑”和交叉任职的利弊等。完善党的基层组织体系，发挥组织引领作用，有利于调动更多相关治理主体的广泛参与。

Build Resource Platforms and Focus on Guarantee Leadership

搭建资源平台 注重保障引领

Community governance needs to focus on resource utilization; the effective use of resources helps to enhance the effectiveness of community governance. In the process of community governance, resources are an important aspect of guaranteeing governance outcomes; without resources, the effects of primary-level governance can sometimes be difficult to manifest. Current resources include those from within the community and those from outside the community. According to field investigations of communities, resources from within the community include community venues, facilities, and other resources, as well as donated resources from community residents and units stationed in the jurisdiction; resources from outside the community mainly come from donations from enterprises, public charitable organizations, and foundations. Some localities have centralized these resources by building platforms such as “community foundations,” “community charity supermarkets,” and “community charity markets,” providing centralized assistance to disadvantaged groups and those in need, maximizing the role of resources. Community Party building can play a corresponding role in coordinating the use of community venues, facilities, and other resources, as well as mobilizing community resident participation and donations from external forces. Some communities promote community resident self-governance through forms such as “mass discussion of affairs” [2]2 “Mass discussion of affairs” (群众说事) is a mechanism for soliciting and deliberating on residents’ opinions and concerns, often through organized meetings or forums.; some communities, through joint Party organization building between different units, link relevant resources and improve community service facilities. Behind the integration of resources by community Party building, the main reliance is on the mobilization and organizational strength of Party building. Overall, building resource platforms through community Party building helps to integrate more resources. With resources in place, primary-level governance obtains resource guarantees and can also play a greater role.

社区治理需要注重资源利用，资源的有效利用有助于提升社区治理效能。在社区治理过程中，资源是保障治理效果的重要方面，没有资源，基层治理效果有时候难以呈现。当前资源包括来自社区内部的资源，以及来自社区外部的资源。根据对社区的实地调查，来自社区内部的资源包括社区场所、设施等资源，以及社区居民、驻辖区单位的捐赠性资源等，来自社区外部的资源主要是来自企业、公益慈善组织、基金会的捐赠等。有些地方通过建设“社区基金会”“社区慈善超市”“社区公益集市”等平台将这些资源集中起来，对困难群体、有需要群体提供集中性帮助，最大限度地发挥资源的作用。社区党建在协调社区场所、设施等资源使用，以及调动社区居民参与、社区外部力量捐赠等方面可以发挥相应的作用。有的社区通过群众说事等形式推动社区居民自治；有的社区通过不同单位之间的党组织联建，链接相关资源，改善了社区服务设施等。在社区党建整合资源的背后，主要是依靠党建的动员和组织力量。整体来说，通过社区党建搭建资源平台，有助于整合更多的资源，有了资源之后，基层治理获得资源保障，也能够发挥更大的作用。

Adhere to a Demand Orientation and Enhance Service Leadership

坚持需求导向 提升服务引领

Community governance is mainly to solve the diverse needs faced by residents in current primary-level society. These diverse needs cannot be provided by a single subject, nor can they rely entirely on primary-level government provision; they require joint provision by governance subjects such as community Party organizations, community residents’ committees, community social organizations, and social workers. Against the backdrop of urbanization and population mobility, community governance also faces new situations and challenges. Based on field investigations, communities have many problems in areas such as renovation of old residential areas, property services, and conflict mediation. In response to the governance problems currently faced by communities, it is necessary to accurately assess residents’ needs, understand what the needs are, distinguish the types of needs, and thus provide targeted services. The main purpose of community Party building leading primary-level governance is to effectively serve the masses. By mobilizing community social organizations, community volunteers, and relevant units stationed in the jurisdiction, community Party building is more conducive to grasping the needs of community residents. For community Party building to lead primary-level governance, it is necessary to adhere to a demand orientation and enhance the quality of service leadership. Adhering to a demand orientation requires understanding the needs of community residents. Generally, the needs of community residents can be understood through forms such as community observation, home visits, and focus group discussions. Through community joint meetings and other forms, relevant primary-level organizations and community resident representatives can be invited to further understand community residents’ needs, thereby promoting the precision of needs assessment. Through investigation, the problems and needs existing in the process of community governance can be accurately discovered. With the help of community Party building, effective services can be provided to the community.

社区治理主要是为了解决当前基层社会中居民面临的多样化需求，这些多样化需求不能通过单一主体进行提供，也不能完全依赖基层政府提供，需要社区党组织、社区居委会、社区社会组织、社会工作者等治理主体联合提供。在城镇化和人口流动的大背景下，社区治理也面临新的形势和挑战。从实地调查来看，社区在老旧小区改造、物业服务、矛盾调处等方面的问题较多。针对当前社区所面临的治理问题，需要准确评估居民的需求，了解需求是什么，分清需求的类型，从而有针对性地提供服务。社区党建引领基层治理的主要目的是有效服务群众，社区党建通过动员社区社会组织、社区志愿者、驻辖区相关单位，更有利于把握社区居民的需求。对于社区党建引领基层治理，需要坚持需求导向，提升服务引领质量。坚持需求导向需要了解社区居民需求，一般可以通过社区观察、入户探访、焦点座谈等形式了解社区居民的需求，并通过社区联席会议等形式，邀请相关的基层组织、社区居民代表进一步了解社区居民需求，从而促进需求评估精准化。通过调查能够准确地发现社区治理过程中存在的问题和需求，借助社区党建，能够为社区提供有效服务。

The above analyzes the innovation of Party building leading community governance from the aspects of organizational leadership, guarantee leadership, and service leadership. In this process, Party building leading community governance becomes a systematic project, that is, starting from building an organizational system and ultimately implementing services, because this is also the inherent meaning of community governance. By providing higher-quality services to community residents, the effectiveness of Party building leading community governance is further demonstrated. Therefore, the paths of Party building leading community governance are closely related; these three paths form a mutually supportive relationship, ultimately aimed at improving community governance mechanisms, revitalizing existing governance resources, optimizing community services, increasing residents’ sense of gain in the process of community governance innovation, enhancing the effectiveness of primary-level governance, and in this process further strengthening the modernization of the primary-level governance system and governance capacity.

以上从组织引领、保障引领、服务引领方面分析了党建引领社区治理创新，在这个过程中，党建引领社区治理成为一项系统工程，即从构建组织体系开始，最终落实到服务，因为这也是社区治理的应有之义，通过为社区居民提供更高质量的服务进一步彰显党建引领社区治理的成效。所以，党建引领社区治理的路径之间具有密切的联系，这三条路径之间形成相互支撑的关系，最终是为了改善社区治理机制、盘活现有治理资源、优化社区服务，在社区治理创新过程中增加居民的获得感，提升基层治理效能，并在这个过程中进一步加强基层治理体系和治理能力现代化建设。

(The author is an Associate Professor at the School of Political Science and Law, Jinggangshan University)

（作者系井冈山大学政法学院副教授）

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