代理还是管家:非营利组织与基层政府的合作关系

Agent or Steward: Understand the Collaborative Relationship Between Local Government and Nonprofit Organizations

为研究基层政府与非营利组织的合作程度，本文采用代理理论和管家理论作为研究视角，对中国基层社区公共服务外包进行质性研究。文章试图回答的问题包括：代理理论和管家理论与中国语境的契合性如何？在中国社区治理实践中，两种理论各自如何诠释基层政府和非营利组织的关系？在实践中，街道官员如何管理和非营利组织的合同承包关系？本文以竞争程度和监督力度为基本分析维度，用初始合作方式代表竞争程度，用日常监管和项目评估代表监督力度。对上海市某街道的实证研究结果表明，由政府发起、主办的非营利组织仍然倾向于扮演管家角色，同时，由于竞争性招投标和正式合同的推广，非营利组织正经历从管家到代理的角色转变。基层政府需进一步提高合同管理能力，以推动建立长期有效的合作伙伴关系。

In this research, relative perspectives to investigate agency and the degree stewardship theories propose to act as of the relationship between local gov- ernments and nonprofit organizations. This study is a qualitative, empirical study of public services contracting in Chinese community. The finding has answered the following questions： （a） Comparing stewardship theory with agency theory, which theory could be adopted as theoretical tent could each theory explains the nonprofit organizations relationship basis in the context of China？ （b） What ex- relationship between local governments and Chinese community？ （c） How could street- level bureaucrats manage contracting relationships with nonprofit organizations in reality？ A matrix graph relying on two dimensions, the degree of competition and monitoring, is analyzed for the relationships. The degree of competition reflects in the form of established collaboration, that is competitive bidding or non-competitive delegation. The reports of frequency and performance evaluation ratio represent the degree of monitoring to a very great extent. The finding suggests that, in Shanghai Yanji Street-level governance, the role of nonprofit organizations change from a steward to an agent role, except for few unaltered steward affiliated to government.Furthermore, street-level governance in China lacks adequate capabilities to man- age contracts, which does not prefer to establish a long-term partnership.