“弱整合”:条块关系视角下乡镇社工站的运作机制

“Weak Integration”:The Operating Mechanism of Township Social Work Stations from the Tiao-kuai Relation

乡镇社工站作为完善社会治理体系的一项制度建设工程,受到条块关系的深刻塑造,其中政治动员、控制权分配和自主性激励是重要维度。本研究基于J县为期一年的乡镇社工站经验,运用深度访谈和参与式观察等方法,试图揭示乡镇社工站的运作机制及非预期性后果。研究发现:(1)弱政治动员、弱控制权分配、弱自主性激励构成的条块互动关系,塑造了乡镇社工站“弱整合”的运作机制;(2)“弱整合”机制导致乡镇社工站呈现出“不完全执行”的现象,社会工作专职化水平总体不高,但民政工作者和社会工作者分别采用“借力”“借势”的策略将治理任务转化为项目指标,拓展了条块关系“弱整合”优势。对此,建议从本地人才专业化培养、政社合作制定项目指标等方面加强社会工作制度建设,更好地增进民生福祉,提高人民生活品质。

As a system construction project to improve the social governance system,township social work stations are implemented through the project system of government procurement services,deeply shaped by Tiao-kuai relationships,with political mobilization,distribution of control rights,and autonomy incentives being important dimensions.This study is based on the one-year experience of township social work stations in J County,using in-depth interviews and participatory observations.Based on three nested types of Tiao-kuai relationships between the county civil affairs bureau and the township government,the township government and township civil affairs department,the township civil affairs department and the township social work station,this study explores the main influencing factors,mechanisms,and unexpected consequences of the operation of the township social work station in the interactive relationship between the Tiao-kuai.This study attempts to provide a new theoretical perspective and development path for promoting the construction of social work stations.The research findings are as follows:(1)The interactive relationship between weak political mobilization,weak distribution of control rights,and weak autonomy incentives has shaped the operational mechanism of“weak integration”of township social work stations.On the one hand,there have been negative effects such as weakened bureaucratic mobilization structure,hindered departmental collaborative functions,and insufficient institutional embedded resources.On the other hand,it also demonstrates the positive effects of business cooperation,professional autonomy,and expected incentives.(2)The“weak integration”mechanism leads to the operational characteristics of township social work stations showing“incomplete execution”,which is not fully embedded in the operational system of the Tiao-kuai relationship system mechanism,but is also constrained by the“weak integration”Tiao-kuai interaction relationship.This leads to an overall low level of specialization in social work.However,civil affairs workers and social workers have respectively adopted strategies of“leveraging”and“leveraging”to transform governance tasks into project indicators,expanding the advantage of“weak integration”of Tiao-kuai relationships.In this regard,it is recommended to strengthen the construction of social work systems from the perspectives of specialized training of local talents,development of project indicators through political and social cooperation,and continuously deepen the grassroots governance practice of“Wu She Lian Dong”to better enhance people’s livelihood and quality of life.In addition,this study selected the construction case of township social work stations in J County,a latecomer region of central social work.It revealed the operational mechanism of“weak integration”of township social work stations from the perspective of the Tiao-kuai relationship.Further case tracking and rich empirical research are needed to determine whether“weak integration”will evolve into other forms in the future and whether it is universal to be extended to other regions.