【作者】 陈为雷；

【导师】 关信平；

【作者基本信息】 南开大学 ， 社会学， 2013， 博士

【摘要】 社会服务项目是政府等资助者外包或资助、非营利组织承接的公益性项目。本文基于我国上海和深圳的政府社会服务项目外包和非营利组织项目运作实践,分析了政府在项目外包中的角色、项目机制和逻辑,非营利组织的项目机制、策略和逻辑,并对项目运作的制度规则体系和项目制的效应进行了深入研究。社会服务项目制是一种社会服务体制和机制,在这种体制下,政府的资源供应和非营利组织的服务提供通过项目连接起来,项目成为连接资源与提供服务之间的桥梁,因此,项目制不仅是一种资金供应与筹集的方式,而且是一种提供服务方式,同时,它更是一种资助机构与服务机构建立稳定的制度化联系的方式。社会服务项目制是一种系统,从其构成要素看,它包括如下一些子系统,如资助机构、服务机构、服务对象等项目主体；从制度规则看,它包括制度背景、正式的制度安排和非正式制度安排；从项目的运作过程看,它包括识别需求、提出解决方案、执行项目、结束项目四个阶段。本文认为社会宏观环境给社会服务项目运作和项目制的建构提供了动力和条件。宏观环境要素包括：社会服务供需不平衡的矛盾产生的社会服务压力和动力；政府购买服务为社会服务项目制的建构奠定了制度基础；非营利组织的发展为项目运作提供了组织基础；福利多元主义和新公共管理为政府项目外包和非营利组织项目运作提供了理论基础。社会服务项目制是在政府和非营利组织围绕项目建构起来的,其中政府扮演规划及政策制定者、资源提供者和组织管理者的角色。政府的项目机制主要是项目外包机制,包括项目招标发包、项目委托发包和公益创投,政府的项目外包逻辑主要是效率和效益的逻辑。与政府的项目机制相对应,非营利组织的项目机制是项目承包机制,包括项目投标和竞标、委托项目承包和公益创投,此外还主动向政府和基金会申请项目。非营利组织的项目运作策略有：根据组织战略进行项目运作；动员员工参与项目开发和设计；项目的分化与整合；项目的经营与滚动；通过项目培育和孵化机构；实施走出去战略,到异地开办机构并承接项目。非营利组织项目运作的多重逻辑包括：项目运作中要使命还是活命的考虑；增强组织的核心竞争力；提高员工的报酬；提升服务的专业化水平；整合资源；在短期性项目和长期性项目中做取舍。项目运作的制度和规则的功能有：有利于实现项目行为与项目秩序的统一,有利于实现成本与效率的统一,制度还为人们观察和理解项目主体的行为和活动提供了一把钥匙。项目制度和规则体系包括项目运作的制度背景、制度安排和非制度安排。制度背景是外生变量,是一系列确定项目行为大前提的基本的政治、经济、社会和法律制度,例如政府采购制度和招投标制度、非营利组织的基本制度、合同制度、市场机制、专业社工制度等。制度安排包括组织系统和规则系统两大类,为项目运作提供了实施结构和各种规范。非制度安排是一种非正式非契约的安排,包括声誉、关系网络、合法性策略意识等,有助于非营利组织成功承接项目。作为一种社会服务的体制和机制,项目制对非营利组织和社会系统产生了积极的影响。对非营利组织来说,增加了资源,获得了更多的社会认可,提高了合法性。对社会来说,提高了社会服务供给效率,满足多元化和变动的社会需求,创造和积累社会资本,促进公民社会的发展。社会服务项目制会在更大的范围扩散开来。本文研究发现,社会服务项目制不是一个统一体,它可以分为招投标项目制、委托项目制和申请项目制三种类型。本文认为项目制是理解政府与非营利组织关系的重要枢纽和关键点,是把服务对象整合进公共制度中的桥梁。社会服务项目制还是一种新的社会服务双轨制。本文提出了发展社会服务项目制的政策建议,包括：建立政府购买服务的公共财政基础,扩大政府购买项目的范围；大力培育和发展公益性非营利组织；培育专业化的项目运作人力资源；项目运作中专业社会工作的介入；完善社会服务项目评估体系。更多还原

【Abstract】 The social service project is a kind of public welfare project which is outsourced or subsidized by the government and undertaken by NPOs. The thesis, based on investigation of the operating practice of the government’s outsourcing such projects and NPOs’carrying out them in Shanghai and Shenzhen, analyzes the role of the government in outsourcing social service projects, the project mechanisms and logic, and NPOs’project mechanisms, strategies and logic, and studies the system of rules and regulations over project operations and the effects of the project system.The project system is a kind of social service system and mechanism by which the government’resources are conveyed to NPOs through social service projects. So social service projects make a bridge between resources and supply of social services. Therefore, the project system of social services is not only a means of raising or supplying funds, but also a way of supplying social services. More importantly, it is also an approach to establishing stable institutionalized contact between the funding institutions and NPOs. As a kind of system, project system of social services comprises different elements such as actors, regulations and rules of project system, and lifecycle of social services project. Actors include funding agencies, service agencies, and clients. Institutions and rules of the project system of social services are divided into three types of the project system such as institutional backgrounds, institutional arrangements and non-institutional arrangements. A whole lifecycle of social service project consists of four stages which include identifying requirements, proposing solutions, executing project, and ending project.Social macro-environment elements provide the impetus and conditions for the operation of the projects of social services and the construction of the social service project system. Those macro-environment elements, include:the social service pressure and driving force caused by the imbalance between supply and demand of social services, the government’s outsourcing as an institutional basis for the construction of the project system; growing of NPOs laying an organizational foundation for the operation of the project system, and the welfare pluralism and new public management providing a theoretical basis for the government’s social service project outsourcing and the NPOs’project operating.The project system of social services is founded jointly by the government and NPOs, in which the government plays many roles such as the plan and policy maker, the resource provider to and the administrator over NPOs, and so on. The project outsourcing mechanism is the government’s main project mechanism, which involves project bidding, commissioned project bidding and venture capital investment for public welfare. Pursuing efficiency and benefits is the government’s logic for outsourcing projects. Corresponding to the project mechanism of the government, NPOs’project mechanism is the project contracting mechanism, which involves competitive project tendering, accepting commissioned projects and venture capital investment for public welfare. In addition, NPOs take initiative to apply for projects to the government and foundations. NPOs’project operation strategies are as follows: operating projects according to their organizational strategies, mobilizing employees to participate in project R&D, differentiating and integrating projects so as to seek funding, managing and rolling projects, hatching and nurturing organizations through projects, and carrying out the going-out strategy to set up organizations and undertake projects in other places. The multiple project logics of NPOs include:considering mission or survival, enhancing organizations’core competitiveness, increasing salaries and rewards for employees, improving the professional level of their social services, integrating resources, and deciding which project to carry out, short-term projects or long-term projects.There are several functions of the institutions and rules for operating the project system of social services:it can improve coordination between project behaviors and the project order, and between the cost and the benefits, and serve as a key to understand the behaviors and activities of the government and NPOs as the subjects of projects. These institutions and rules of the project system of social services are divided into institutional backgrounds, institutional arrangements and non-institutional arrangements. The institutional backgrounds, which are exogenous variables, are the basic political, economic, social and legal systems which determine the behaviors of the government and NPOs, such as the regulations for government purchasing, the public bidding and tendering system, and the basic regulations for NPOs, the contract system, the market mechanism, the system of professional social work and social workers. The institutional arrangements of NPOs include the organizational system and the rule system, which provide the implementing structure and various norms for carrying out social service projects. Non-institutional arrangements of the project system of social services are informal and non-contractual, involving reputation, networks of relationship, and consciousness of legitimacy strategies, which are set up to facilitate NPOs’efforts to apply for social service projects.As a kind of social service system and mechanism, the project system has some positive impacts on NPOs and the society. With it, NPOs can get more access to the resources and more social acceptance, thus increasing their legitimacy through implementing social service projects. As far as the society is concerned, the project system improves the efficiency of providing social services, meets different and changeable social needs, and creates and accumulates social capital, which will foster and promote the development of the civil society. The project system of social services will be expanded and applied in a broader area.This thesis founds that project system of social services is not continuum, that it can be divided into bid bidding-tendering project system, the commissioned-project system and the project-applying system. This thesis argues that the project is an important hub and key to understand the relationship between the government and NPOs, that the project is a bridge to integrate clients into the public system, that the project system can be considered as a two-track system in providing social services. This thesis proposes some suggestions so as to develop project system of social services, which include:to establish public financial basis for outsourcing social services to NPOs, to expand the scope of purchase items, to develop NPOs, to cultivate professional human resources to operate project, and to improve evaluation system to evaluate social service project.更多还原