过程式嵌入:对社会服务项目化供给低效运转的解释——以S市A街道办事处社会服务项目为例

Procedural Embedment and Explanation of Ineffective Social Services Provision:A Case Study of A Sub-district in S City

社会服务项目外包是政府增进社会服务的重要手段之一,然而,社会服务在增量供给的同时却易呈现出低效运转的特点。文章从嵌入性视角出发,采用参与式观察和深度访谈等方法完成资料收集,并对A街道购买社会服务项目进行案例分析。研究发现,基层政府部门利益分割、运动式资源整合致使其采取过程式嵌入的治理手段。具体表现在基层政府项目开始前的目标嵌入、项目实施中的组织嵌入和项目结束后的绩效嵌入。目标嵌入使项目总体符合政府政治目标,但容易造成正式契约的形式化;组织嵌入将政府与社会组织捆绑成“利益共同体”,易导致社会组织发展的“马太效应”;绩效嵌入使项目更多服务于政府的绩效期待,易出现社会服务“内卷化”。过程式嵌入导致的社会服务低效运转将难以真正回应社会需求,不利于社会建设的长远目标。

Currently outsourcing projects by the government is the major means of social services provision in China.However,why does ineffective provision exist while the amount of public services is increasing?Using A Sub-district of S City as a case study,this paper finds out that the interest of local governmental sectors are rather separated while resources are integrated on ad hoc basis.As a result,the local states have to embed their supervision into all the stages of project implementation,including target setting,project en-forcement and performance evaluation.Embedding in target setting can make the formal contract of the project become formalities.Embedding in project enforcement will cause the Matthew effect as some so-cial organizations may have closer relationship to local states.Embedding in performance evaluation is possible to lead to the involution of social services as only a limited number of indexes would be attached importance to.Although“procedural embedment”can increase the amount of social service provision for now,it will also interfere social development in a long run.