双层逻辑与共生网络:基层政府购买服务何以出现政策偏离——基于S市M区的案例研究

Double Logic and Symbiosis Network:Why Does Grassroots Government Purchasing Services Deviate from Policy——A Case Study of M District of S City

为了更好地寻求基层政府购买服务"政策偏离"的生成逻辑,本文依据"科层为体、合同为用"的理论框架,观察S市M区政府购买服务运作的全过程,研究发现:首先,基层政府购买服务本质上是一个政治场域,即"合同让位科层、行政主导购买";其次,基层政府购买服务中同时存在顶层逻辑与属地逻辑,在双层逻辑博弈的情境下,"顶层逻辑主导"使得属地政府与社会组织"共谋"而形成政社联合体;最后,政府与社会组织互动呈现共生发展的趋势,在共生网络中"关系信任而非专业信任"成为基层政府优先向谁购买服务的首要因素。这表明,基于政治场域的基层政府购买服务受限于双层逻辑失衡、共生网络弱态,以至于呈现出行政化、内部化、形式化等非预期结果。在未来,政社互动的模式应从"弱共生"走向"强共生",进而形成一种政社双方既相互独立又相互依赖的共生模式。

In order to better seek the generation logic of"policy deviation"in the purchase of services by the grass-roots government,based on the theoretical framework of"hierarchy as body,contract as use",this paper observes the whole process of government purchasing service in M district of S city.Firstly,the purchase of services by grassroots government is essentially a political field,which means"Contracts demise hierarchy,administration leads purchase".Secondly,there are both top-level logic and territorial logic in grassroots purchasing services.In the context of double logic game,"top-level logic leading"forces territorial governments and social organizations to"conspiracy"to form a coalition of government and social organizations.Finally,the interaction between government and social organizations shows a symbiotic development trend.In the symbiotic network,"relationship over ability"has become the primary factor for the primary government to purchase services from whom.This shows that the purchase service based on the political field is limited by the double-layer logic imbalance and the weak state of the symbiotic network,so that it presents unexpected results such as administration,internalization and formalization.In the future,the mode of interaction between government and social organizations should change from"weak symbiosis"to"strong symbiosis",and then form a symbiotic mode of mutual independence and interdependence.