跨层级协同视角下老旧小区适老化改造的实践逻辑——基于广州市C社区的经验

The Practical Logic of Age-Friendly Renovation of Old Residential Communities from the Perspective of Cross-Level Collaboration—Based on the Experience of Community C in Guangzhou

摘要: 随着我国人口老龄化程度加深，老旧小区适老化改造已成为城市更新的重要内容。然而，改造实践中普遍面临政策悬浮、主体离散、效能不足三重困境，制约了治理效果的转化。文章以广州市C社区为典型案例，聚焦跨层级协同在推动老旧小区适老化改造中的运作机理，系统剖析C社区转型为“试点社区”的历程。研究整合协同治理理论与嵌入性理论，构建“制度嵌入–组织嵌入–效能嵌入”分析框架，展现跨层级协同适老化改造的完整实践逻辑。制度嵌入将宏观政策的“模糊授权”转化为社区层面的可操作规则，为多元主体协作提供稳定的制度预期；组织嵌入通过搭建社区议事平台、编织四级联动网络、激活专业社会力量，将离散主体整合为有机的治理网络；效能嵌入建立全程监督评估机制，确保治理成果转化为居民可感的服务体验并实现持续改进。C社区的经验表明，强化社区议事机构的规则建构功能、搭建常态化社区协商平台、构建资源整合与长效监督机制，是推动适老化改造落地的关键路径。研究对于理解跨层级协同在基层治理中的效能转化路径、推动同类老旧小区适老化改造具有参考价值。

Abstract: With the deepening of population aging in China, the adaptation of old residential communities for the elderly has become an important aspect of urban renewal. However, in practice, such renovations generally face the triple dilemmas of policy ambiguity, fragmented actors, and insufficient effectiveness, which restrict the transformation of governance outcomes. This paper takes Community C in Guangzhou as a typical case, focusing on the operational mechanism of cross-level collaboration in promoting the adaptation of old residential communities for the elderly, and systematically analyzes the process of C Community’s transformation into a “pilot community”. The study integrates collaborative governance theory and embeddedness theory, constructing an analytical framework of “institutional embeddedness-organizational embeddedness-effectiveness embeddedness”, which demonstrates the complete practical logic of cross-level collaborative adaptation for the elderly. Institutional embeddedness transforms the “ambiguous authorization” of macro policies into actionable rules at the community level, providing stable institutional expectations for collaboration among multiple actors; organizational embeddedness integrates fragmented actors into an organic governance network by establishing community deliberation platforms, weaving a four-level linkage network, and activating professional social forces; effectiveness embeddedness establishes a full-process supervision and evaluation mechanism to ensure that governance achievements are transformed into tangible service experiences for residents and enable continuous improvement. The experience of C Community indicates that strengthening the rule-building function of community deliberative bodies, establishing normalized community consultation platforms, and constructing mechanisms for resource integration and long-term supervision are key pathways to implementing adaptations for the elderly. The study provides reference value for understanding the efficiency transformation path of cross-level collaboration in grassroots governance and for promoting the adaptation of similar old communities for the elderly.