党的十九大明确的指出了要“推动社会治理重心向基层下移”，强调基层社会治理是社会治理体系的重要手段和方法之一。党的十九大以来，地方政府作出了一系列的有益探索，它们利用当前社会信息发展的趋势，积极运用信息技术，逐步引导居民公众参与社会治理，拓宽政民互动的渠道、形式、范畴和内容，在很多城市中发展迅猛。北京市依托于12345市民服务热线，推动“接诉即办”治理实践。其主要特点是通过赋能政务热线，让公众以“哨源”、“考核者”与“回应对象”三重角色参与到社会治理中，为市民与政府建构了制度化的链接与沟通渠道。

街道办事处作为最基层一级的政府部门，处于基层治理的最前沿，是执行政府热线“接诉及办”工作的主体。相对于市、区一级政府，基层政府有更多的机会接触和倾听市民的诉求，掌握着提升热线服务质量的第一手数据。因此，在基层社会治理背景下，基层政府如何根据自身的资源和所管辖区内的环境特点，构造有效的街道-社区居民互动模式，突破各种瓶颈，提高热线运行效能，是保持公众与执政部门间理性对话和良性互动的有效保障。然而，目前的12345市民服务政府热线建设研究多集中在宏观理论和治理框架的探讨和研究上，忽视了基层治理的主体，即街道办事处，在12345政府热线建设中扮演的重要角色。这种研究现状在一定程度上限制了基层治理创新经验和管理模式的交流和推广，不利于进一步提高社会治理和政府热线服务效能。

本研究采用基层治理的视角，通过对政务热线公开数据和典型案例的分析，描述分析了北京市某街道在将12345政府服务热线纳入基层社会治理的手段之后在基层社会治理方面发生的变化以及面对的困难和挑战。作为本文重点分析的北京市展览路街道位于二环内，是非常具有代表性的综合型街区。它既有与时俱进的金科新区，也有面积庞大的老旧小区。这些老旧小区的特点是常住人口占比大、公共服务不齐、市政配套设施落后、私搭乱建严重、停车位不足等问题较为突出，影响着居民的生活质量，导致了热线投诉基数大，基层治理效能与群众对美好生活的期盼仍存在较大差距。相对与其他新社区，老旧小区的熟人社会关系网相对成熟，物业管理委员会健全，市民参与社会治理的积极性高，但同时，居民素质整体较低，沟通起来较为困难。

本研究结果可以概括为以下几点：一是总结出目前北京市“12345”政府服务热线存在以下几个问题：1、北京市“12345”政府服务热线的机制体制建设有待改进；2、北京市政府有待进一步整合和完善目前已有的热线资源；3、共建共治共享资源整合有待提升；4、政府热线的法制化建设需进一步推进。二是分析出导致这些问题的原因主要包括政府定位因素、设立制度因素、公民因素以及探索升级因素等。三是对发现的问题及其背后潜在因素进行深入探究，提出四个方面值得借鉴和反思：1、加大力度深化制度建设，使得长效机制更加完善健全；2、进一步整合资源，增强政府部门之间联动；3、全力推进网格化建设，维护融洽共治氛围；4、坚决落实法治建设，精准定位热线工作。

本研究的结果丰富基层社会治理文献，为执政部门提供科学指导，对市民服务热线为代表的政务运行体系的持续健康发展具有重要的实践意义，也为向“服务型政府”转变这一重大工程提供新的思路和视野。

The 19th National Congress of the CPC clearly pointed out that "to promote the social governance center to move down to the grass-roots level", emphasizing that grass-roots social governance is one of the important means and methods of social governance system. Since the 19th National Congress of the CPC, local governments have made a series of useful explorations. They have made use of the current trend of social information development, actively use information technology, gradually guide the residents to participate in social governance, broaden the channels, forms, categories and contents of the interaction between the government and the people, and have developed rapidly in many cities. Beijing relies on 12345 public service hotline to promote the governance practice of "accepting complaints and doing it as soon as possible". The main feature of the system is to enable the public to participate in social governance by enabling the government hotline, which can make the public participate in social governance in the three roles of "sentinel", "assessor" and "response object", and construct a systematic link and communication channel for the public and the government.

As the most basic level government department, the street office is at the forefront of grass-roots governance, and is the main body of the implementation of the government hotline "receiving complaints and handling". Compared with the municipal and district level governments, the grass-roots governments have more opportunities to contact and listen to the demands of the public, and master the first-hand data to improve the quality of hotline service. Therefore, under the background of grass-roots social governance, how the grass-roots government can construct effective street community residents interaction mode according to its own resources and the environmental characteristics of the jurisdiction, break through various bottlenecks and improve the operation efficiency of the hotline is an effective guarantee for maintaining rational dialogue and benign interaction between the public and the ruling departments. However, the current research on the construction of 12345 public service government hotline focuses on the macro theory and governance framework, neglecting the main body of grass-roots governance, namely Street office, which plays an important role in the construction of 12345 government hotline. This research situation limits the exchange and promotion of innovation experience and management mode of grass-roots governance to some extent, which is not conducive to further improving the efficiency of social governance and government hotline service.

This study uses the perspective of grass-roots governance, through the analysis of the public data and typical cases of government hotline, describes and analyzes the changes and challenges in the grass-roots social governance of a street in Beijing after the 12345 government service hotline is incorporated into the basic social governance. As the focus of this paper, the Exhibition Road Street in Beijing is located in the Second Ring Road, which is a representative comprehensive block. It has both the Jinke new district with the times, and the old and old districts with a large area. The characteristics of these old residential areas are that the proportion of permanent residents is large, the public service is uneven, the municipal facilities are backward, the private buildings are built seriously, and the parking space is insufficient, which affects the quality of life of residents, leading to the large number of hotline complaints, and the gap between the grass-roots governance efficiency and the expectations of the masses for a better life. Compared with other new communities, the acquaintance social network of old community is relatively mature, the property management committee is sound, and the citizens' enthusiasm for participating in social governance is high. However, the overall quality of residents is low and communication is difficult.

The results of this study can be summarized as follows: first, the following problems exist in the current Beijing "12345" government service hotline: 1. The mechanism and system construction of Beijing "12345" government service hotline needs to be improved.; 2. Beijing municipal government needs to further integrate and improve the existing hotline resources; 3. The integration of CO governance and sharing resources needs to be improved; 4. The legalization construction of the government hotline needs to be further promoted. Secondly, the reasons for these problems are mainly government orientation, institution, citizen and exploration and upgrading. Third, the problems found and the underlying factors are deeply explored, and four aspects worth learning and reflection are put forward: 1. Strengthen the deepening of system construction, and make the long-term mechanism more perfect and sound; 2. Further integrate resources and strengthen the linkage between government departments; 3. We will make every effort to promote grid construction and maintain a harmonious and co governance atmosphere; 4. We will firmly implement the construction of the rule of law and accurately locate the hotline work.

The results of this study enrich the literature of grass-roots social governance, provide scientific guidance for the governing departments, and have important practical significance for the sustainable and healthy development of the government operation system represented by the public service hotline, and also provide new ideas and perspectives for the transformation of this major project to "service-oriented government".