超越行政雇佣制和项目外包制?——复合型政府购买公共服务策略研究

Beyond Administrative Employment Pattern and Project Outsourcing Pattern?——A Research on the Compound Strategy of Government Purchasing Public Service

间接控制的“项目外包制”和直接控制的“行政雇佣制”是近年来地方政府购买公共服务的两种基本策略,分别代表了分权与集权的逻辑进路。对广东和杭州两地的经验案例分析发现,随着社会转型期加快,广东正在经历由“项目外包制”下的“家综模式”向“行政雇佣制”下的“双百计划”过渡,杭州正在遭遇由“行政雇佣制”下的“全能社工”向“项目外包制”下的“项目社工”转型。二者在行政体制内外的渐进式演化是地方政府放权和收权适度平衡、政治和社会有机统合的产物,代表了一种复合型政府购买公共服务模式的兴起。这一模式确立了一种由体制、市场、社会三轨运行的治理逻辑,兼顾了社会福利、行政控制与专业价值多重利益诉求,加快了基层社会治理的结构重组和功能再造。

Direct domination of“Administrative Employment Pattern”and indirect domination of“Project Outsourcing Pattern”,which represent the logical approaches of centralization and decentralization,are the basic strategies for the local governments to purchase public social services.Based on the empirical case of Guangdong Province and Hangzhou City in China,we found that under the rapid social transformation progress,Guangdong Province is experiencing the transition from“Integrated Family Service Center”under“Project Outsourcing System”to“Guangdong s Five-year Social Service Plan”under“Administrative Employment Pattern”;At the same time,Hangzhou City is experiencing the period from“Versatile Social Workers”under“Administrative Employment Pattern”to“Project Social Workers”under“Project Outsourcing Pattern”.The gradual evolution of both patterns in and out of the administrative system is the product of the proper balance of state decentralization and power collection,and the organic integration of politics and society,which represents the rise of a Compound Strategy of Government Purchasing Public Service.This strategy has established the logic of governance including the administrative system,market and society,which takes into account the multiple interests of social welfare,administrative control and professional value,and finally speeds up the structural reorganization and functional reconstruction of social governance at the grassroots level.