政府和非营利组织项目运作机制、策略和逻辑——对政府购买社会工作服务项目的社会学分析
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摘要
从社会现象中提炼出"项目机制-策略-逻辑"的概念框架,运用社会学定性分析方法,对上海浦东新区、深圳的政府相关部门、8个非营利组织及服务对象进行了调查,深入探讨了政府和非营利组织项目运作机制、策略和逻辑。政府购买社会工作服务项目机制是项目外包机制,包括招标发包、委托发包和举办公益创投活动。政府购买社会工作服务项目遵循效率和效益的逻辑。非营利组织的项目机制是项目承包机制,包括项目投标和竞标、承接政府部门的委托项目和参加公益创投活动。非营利组织采用多种项目运作策略,遵循多重项目运作逻辑。政府购买社会工作服务项目存在着风险和挑战,如交易成本增加、服务对象瞄准问题、腐败和寻租现象、机构丧失独立性、目标置换现象等。社会工作服务项目是把服务对象整合进公共制度的桥梁,政府购买社会工作服务项目不仅是政府与非营利组织构建合作伙伴关系的重要途径,它还是一种新型的社会服务双轨制。受限于研究领域和案例数量,文章结论在更大范围内的适用性仍有待进一步检验。
The objective of this paper is to illustrate and examine the different project mechanism,strategies and logic adopted by government and NPOs in the progress of government's outsourcing government-financed social work service projects to NPOs by sociological methods.A qualitative research study,involving some government departments,eight NPOs,and some clients in NPOs in Shanghai Pudong New Area and Shenzhen,China was conducted.The analysis,based on the materials gathered in social survey and literatures of government's outsourcing social work service projects to NPOs,reveals that different project mechanism,strategies and logic of government and NPOs.The project outsourcing mechanism is the government's main project mechanism,which involves project bidding,commissioned project bidding and venture capital investment for public welfare.Pursuing efficiency and benefits is the government's logic for outsourcing projects.Corresponding to the project mechanism of the government,NPOs' project mechanism is the project contracting mechanism,which involves competitive project tendering,accepting commissioned projects and venture capital investment for public welfare.NPOs design many project operation strategies and follow multiple project logics.Some risks and challenges are mentioned,such as increased transaction costs,difficulty to target clients,corruption and rent-seeking,loss of independence of institution,and goal displacement.This paper argues that the social work service project is a bridge to integrate clients into the public system,that government's outsourcing social work service projects to NPOs is not only an important way to construct the partnership between the government and NPOs but also can be considered as a new two-track system in providing social services.The key limitation of the study is that it focuses solely on two cities and eight NPOs,which makes it difficult to generalize the results to other cities and NPOs.This paper abstract the "project mechanisms-strategy-logic" analytical framework from social practice,illustrate how social work service projects transfer from government to NPOs,and what mechanism,strategies and logic can be adopted in government's outsourcing government-financed social work service projects to NPOs.
The objective of this paper is to illustrate and examine the different project mechanism,strategies and logic adopted by government and NPOs in the progress of government's outsourcing government-financed social work service projects to NPOs by sociological methods.A qualitative research study,involving some government departments,eight NPOs,and some clients in NPOs in Shanghai Pudong New Area and Shenzhen,China was conducted.The analysis,based on the materials gathered in social survey and literatures of government's outsourcing social work service projects to NPOs,reveals that different project mechanism,strategies and logic of government and NPOs.The project outsourcing mechanism is the government's main project mechanism,which involves project bidding,commissioned project bidding and venture capital investment for public welfare.Pursuing efficiency and benefits is the government's logic for outsourcing projects.Corresponding to the project mechanism of the government,NPOs' project mechanism is the project contracting mechanism,which involves competitive project tendering,accepting commissioned projects and venture capital investment for public welfare.NPOs design many project operation strategies and follow multiple project logics.Some risks and challenges are mentioned,such as increased transaction costs,difficulty to target clients,corruption and rent-seeking,loss of independence of institution,and goal displacement.This paper argues that the social work service project is a bridge to integrate clients into the public system,that government's outsourcing social work service projects to NPOs is not only an important way to construct the partnership between the government and NPOs but also can be considered as a new two-track system in providing social services.The key limitation of the study is that it focuses solely on two cities and eight NPOs,which makes it difficult to generalize the results to other cities and NPOs.This paper abstract the "project mechanisms-strategy-logic" analytical framework from social practice,illustrate how social work service projects transfer from government to NPOs,and what mechanism,strategies and logic can be adopted in government's outsourcing government-financed social work service projects to NPOs.
引文
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[34]郑卫东.城市社区建设中的政府购买公共服务研究——以上海市为例[J].云南财经大学学报,2011(1):153-160.
[35]张英,王辰尧.我国政府购买机构养老服务的政策分析[J].经济体制改革,2012(2):21-25.
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[37]MILLER C.Producing Welfare:A Modern Agenda[M].New York:Palgrave Macmillan,2004:148.
[38]莱斯特·M·萨拉蒙.公共服务中的伙伴——现代福利国家中政府与非营利组织的关系[M].田凯,译.北京:商务印书馆,2008:111-112.
[39]戴维·波普诺.社会学[M].李强,译.北京:中国人民大学出版社,1999:195.
[40]李海东.论组织目标置换产生的原因和防范措施[J].学术交流,2009(12):144-146.
[41]李友梅,肖瑛,黄晓春.当代中国社会建设的公共性困境及其超越[J].中国社会科学,2012(4):125-139.
[42]胡薇.国家回归:社会福利责任结构的再平衡[M].北京:知识产权出版社,2012.
[2]狄海德.项目管理[M].郑建萍,等译.上海:同济大学出版社,2006:3.
[3]邓国胜.公益项目评估——以“幸福工程”为案例[M].北京:社会科学文献出版社,2002:165-166.
[4]折晓叶,陈婴婴.项目制的分级运作机制和治理逻辑——对“项目进村”案例的社会学分析[J].中国社会科学,2011(4):126-148.
[5]周飞舟.财政资金的专项化及其问题:兼论“项目治国”[J].社会,2012(1):1-37.
[6]陈家建.项目制与基层政府动员——对社会管理项目化运作的社会学思考[J].中国社会科学,2013(2):64-79.
[7]马良灿.项目制背景下农村扶贫工作及其限度[J].社会科学战线,2013(4):211-217.
[8]渠敬东.项目制:一种新的国家治理体制[J].中国社会科学,2012(5):113-130.
[9]民政部,财政部.关于政府购买社会工作服务的指导意见[EB/OL].(2013-04-08)http://sw.mca.gov.cn/article/zcwj/201304/20130400441061.shtml.
[10]陈为雷.从关系研究到行动策略研究——近年来我国非营利组织研究述评[J].社会学研究,2013(1):228-240.
[11]康晓光,郑宽,蒋金富,等.NGO与政府合作策略[M].北京:社会科学文献出版社,2010:5.
[12]邱益中.政府购买公共服务要有制度规范[N].文汇报,2012-01-18(05).
[13]上海市民政局.上海社区公益服务项目招投标工作介绍[EB/OL].(2009-05-26)http://www.gysq.org/sqgy/zj/zixun_detail.dhtml?id=53&Exp_Type_Id=1909.
[14]王川兰.委托与替代:第三部门履行公共职能的模式研究[J].上海行政学院学报,2003(1):55-63.
[15]潍坊社区扶持社会组织发展的若干意见(试行)[EB/OL].浦东公益网.http://www.pudongnpo.org.cn/npostoreshow.php?pid=171.
[16]LETTS C W,RYAN W,GROSSMAN A.Virtuous Capital:What Foundations Can Learn from Venture Capitalists[J].Harvard Business,1997(3-4):36-44.
[17]MOODY M."Building a Culture":The Construction and Evolution of Venture Philanthropy as a New Organizational Field[J].Nonprofit and Voluntary Sector Quarterly,2008,37(2):324-352.
[18]FRUMKIN P.Inside Venture Philanthropy[J].Society,2003(5-6):7-15.
[19]李健,唐娟.政府参与公益创投:模式、机制与政策[J].公共管理与政策评论,2014,3(1):60-68.
[20]王劲颖.上海公益招投标和公益创投工作成效及发展趋势[J].社团管理研究,2012(12):39-42.
[21]向木杨.深圳公益创投的实践与反思[J].中国社会工作,2012(2)上:36-37.
[22]蔡琦海.公益创投:培育非营利组织的新模式——以“上海社区公益创投大赛”为例[J].中国非营利评论,2011(1):164-182.
[23]刘新玲,吴丛珊.公益创投的含义、性质与构成要素[J].福建行政学院学报,2011(4):31-35.
[24]周雪光.组织社会学十讲[M].北京:社会科学文献出版社,2003.
[25]深圳市BA区民政局.BA区社会工作情况调研报告[Z].深圳:深圳市民政局,2012.
[26]上海市民政局.上海社区公益服务项目招投标实用资料汇编[M].上海:上海市民政局,2012.
[27]深圳市民政局.深圳市社区服务中心设置运营标准(试行)[EB/OL].(2011-10-18)http://www.szmz.sz.gov.cn/xxgk/ywxx/shxx/zcfg/201110/t20111018_1744115.htm.
[28]张钟汝,范明林.政府与非政府组织合作机制——对两个非政府组织的个案研究[M].上海:上海大学出版社,2010.
[29]刘小霞.上海“乐群”:一个草根社工机构的观察样本[J].中国社会导刊,2007(20):11-13.
[30]HALL D.Privatisation,Multinational,and Corruption[J].Development in Practice,1999(5):1-31.
[31]杨安华.西方国家公共合同外包研究述评[C]//“建设服务型政府的理论与实践”研讨会暨中国行政管理学会2008年年会论文集.北京:2008:366-371.
[32]陆春萍.我国政府购买公共服务的制度化进程分析[J].华东理工大学学报(社会科学版),2010(4):102-107.
[33]顾江霞,罗观翠.试论政府购买社会服务项目的责信机制——基于H市政府购买社会服务项目实践的经验[J].华东理工大学学报(社会科学版),2010(4):108-115.
[34]郑卫东.城市社区建设中的政府购买公共服务研究——以上海市为例[J].云南财经大学学报,2011(1):153-160.
[35]张英,王辰尧.我国政府购买机构养老服务的政策分析[J].经济体制改革,2012(2):21-25.
[36]WUTHNOW R.Between States and Markets:The Voluntary Sector in Comparative Perspective[M].New Jersey:Princeton University Press,1991:299.
[37]MILLER C.Producing Welfare:A Modern Agenda[M].New York:Palgrave Macmillan,2004:148.
[38]莱斯特·M·萨拉蒙.公共服务中的伙伴——现代福利国家中政府与非营利组织的关系[M].田凯,译.北京:商务印书馆,2008:111-112.
[39]戴维·波普诺.社会学[M].李强,译.北京:中国人民大学出版社,1999:195.
[40]李海东.论组织目标置换产生的原因和防范措施[J].学术交流,2009(12):144-146.
[41]李友梅,肖瑛,黄晓春.当代中国社会建设的公共性困境及其超越[J].中国社会科学,2012(4):125-139.
[42]胡薇.国家回归:社会福利责任结构的再平衡[M].北京:知识产权出版社,2012.