政社合作与国家能力建设——基层社会管理创新的实践考察

Cooperation between Government and Social-Organization and State Capacity-Building:Practice Investigation on Grass-roots Social Management Innovation

基层政府因服务能力不足而陷入"责能困境",并尝试性地以"政社合作"等社会管理创新推进国家能力建设。本文在国家能力建设理论视角下解释政社合作的深层逻辑。对"凯益荟"的个案研究发现,社会结构转型及居民诉求变化使得政府对社会组织拥有共容利益,为政社合作奠定了结构性基础;理性政府则根据社会组织的能力类型建构合作策略:社会组织分为自我保护型与专业服务型,政府分别以"孵化性赋能策略"激发自我服务能力与"竞争性购买策略"吸纳专业服务能力。政社合作使国家能力之服务能力得到了建制性增长,合作网络为国家权力渗透社会、资源动员及机制整合提供了枢纽性平台,社会组织借机也获得合法性、生存资源及活动空间。因此,政社合作网络演变成国家能力建设与社会组织发展的共生场域,使国家权力与社会自治保持有机团结。本文创新点在于从国家能力建设解释政社合作的动力、策略及趋势,丰富了基层社会管理创新的理论视角。

Due to the insufficient service ability,the grass-roots government fall into dilemma from accountability to responsibility,the innovations of social management put forward by the primary level government,which tries to construct the cooperation for the government and social organization which promote national capacity building. This paper explains the deep logic of cooperation between government and social organization in the perspective of state capacity-building theory. The study states that with the changing with the social structural transformation and the residents changed appeals,the government have common interests with social organization,which established the structural foundation;the rational government chooses the cooperation strategy basing on the types of social organizations ability. The social organization can be divided into types of self-protection and specialized service,while the government have separately strategies,the 'incubating empowerment strategies' which stimulates the self-service abilities,the 'competitive purchase strategies' absorbing the professional service capacity. From the case of Kaiyihui the essay found that the national service abilities may be systematic promoted by the cooperation between government and society,the cooperation network can provide the pivot platform in which the power of state penetrating into the society,the resource mobilization and the integration of them;the social organization take the opportunity to enhance the legitimacy,the survival resource and activity space,then generate the structuralism civil society. The cooperation network by the government and society finally become the shared field for the capacity building of state and development of social organization,which make the state power keep the organic solidarity with the social autonomy. This paper is to explain the motivation,strategies and trends of cooperation between government and social organization from the state capacity-building,enrich the research of grass-roots social management innovation.