基层文化单位的效率困境:供给侧结构问题还是管理技术问题——以5省10个文化站为中心的观察

Efficiency Dilemma of Grassroots Cultural Units:Structural Problems of the Supply Front or Management Technology Problems?——Observation on Ten Cultural Stations in Five Provinces

现代国家的合法性资源既来源于历史传统,又来源于国家现代化建设的成效。文化站作为政府的基层文化单位,是我国现代公共文化服务体系中的一个环节,因其承担面向基层社区提供公共文化产品的任务而获得自身的合法性,故文化站又是国家合法性资源建设的重要组成部分。国家藉助文化站等基层组织,为社会提供公共文化产品和服务,以提升整个社会的文化心理结构,让全社会形成一种礼敬传统文化、崇尚公平竞争、崇尚效率优先、崇尚技术和智慧的文化价值系统,形成有利于支撑现代经济社会结构的文化结构和社会发展的精神动力,这是文化站等基层文化机构得以设立并得到国家财政支持的核心价值所在。文化站等基层文化机构既是公共文化产品和服务的生产者,又是基层公共文化传播系统的一部分。经过对国家公共文化政策实验基地文化站的持续观察显示,我国基层文化机构正陷入公共资源投入不断增加而绩效却持续下滑的"悖论",这种情形使正在实施的国家公共文化服务体系建设面临"未强先衰"的窘境。研究发现,文化站面临的发展困境,其实质是基层文化机构的传统业务模式与高速城市化进程和数字信息技术快速发展所导致的社会文化生态环境变迁之间出现的结构性失衡,这种结构性问题只能通过供给侧结构性改革而不能够仅仅凭藉机制措施来解决。文化站比照事业体制的制度设计是一种低效率的管理模式;一向行之有效的传统的"增人加钱"式增量改革模式也正逐步失去有效性。必须重新梳理我国基层文化单位的结构性改革思路,明确基层公共文化事权和支出责任的财政政策基准,不再仅仅聚焦于经费、编制和管理标准等技术性层面的问题,而必须树立建设现代公共文化服务体系、推动公共文化供给侧结构性改革的战略思维。

The continued observation of the cultural stations of the national public cultural policy experiment bases shows that the grass-roots cultural institutions of our country are trapping the ＂paradox＂--increasing public resources input and declining performance, which makes the construction of national public cultural service system facing the dilemma of ＂declines before getting strong＂. The study found that the essence of culture station developing plight is the structural imbalance between traditional business mode of grassroots cultural institution and social culture environment changes caused by rapid development of urbanization and digital information technology. Solving this structural problem can only be through the structural reform of the supply front, not relying on innovation of mechanism. The system design of culture station which is based on the institutional system is inefficient; traditional ＂add people and money＂ mode of incremental reform which has always been effective is gradually losing its efficiency. It is necessary to reconstruct the structural reform ideas of grass-roots cultural units in China, to define the financial standards of grassroots public eultural power and duties of expenditure. We should not focus on technical issues such as funding, authorized strength and management standards, but establish the strategic thoughts of the construction of modern public cultural services system and promotion of public culture supply-front structural reform.