外部约束与内在激励:政府购买公共服务持续性的双重逻辑——以A市社区购买社工服务为例

External Constraints and Intrinsic Incentives:the Double Continuous-Logic of the Government Purchasing Public Service——Taking the Community of A City Purchasing Social Service as an Example

政府购买公共服务已成为我国公共服务供给的一种常规化方式且仍在持续推进,但其何以持续的内在逻辑尚未得到系统阐释。基于国家改革背景与地方实践经验分析,可以发现政策层面的机构编制“只减不增”、民生支出“只增不减”的刚性约束,社会层面的公共服务需求刚性上涨及其与机构编制刚性收缩之间的供需矛盾加剧等,构成了政府持续购买公共服务的外部压力;而购买公共服务过程中的财政扩权为地方政府部门提供了一个扩编之外的目标达成、利益实现的新出口,在“能力-绩效”激励、变相的“曲线养人”激励等层面,构成了政府持续购买公共服务的内生动力。这一双重逻辑的揭示为更加立体地认识政府购买公共服务的已有举措、潜在偏差、未来方向等提供了新的视角和政策启发,并丰富了对其中政社关系样态、基层政府激励以及基层政府放权-扩权张力等问题的客观解释。

Government purchasing public service from social forces has become a routine way of public service supply and is still advancing,but its continuous logic has never been systematically explained.Based on the relevant policy background and practical experience analysis,this paper finds the rigid constraints policy of“only reduce no increace”of institutional establishment,the“only increace no reduce”of the people's livelihood expenditures,and rigid rise of public service demand,constitute the external pressure of the government to buy public services.The financial power-expansion in the process provides local government departments with a new way to realize goals and benefits,which constitutes the endogenous driving force of this turn in terms of“capability-performance”incentives and disguised“curve support”incentives.The above logic reveals new perspectives and policy inspirations for understanding the government's existing measures,potential risks,and future directions in purchasing public services,as well as enriches the explanation of the relationship between political and social relations,local government incentives,and the decentralization and expansion of government power.