中國社會工作新治理模式之研究—以珠三角地區雙百工程為例

針對政府購買服務問題，中國大陸珠江三角洲地區實施了社會工作「雙百模式」，即政府直接雇傭社會工作者並將其派駐至社區，以此推進治理。這一模式引發了人們深思，它在打破原有的政府購買社會服務准市場機制的同時，是否真正實現了從管理向治理的轉變，還是僅僅停留在新管理主義階段，甚至退回到了「科層-專業主義」的老路？因此，本研究將以治理理論為基礎，探討社區實踐場景中理想狀態的「應然面」與「雙百模式」實際運作的「實然面」之間存在的差距。本研究的主要目的如下：（一）新治理模式下雙百社工站當前福利輸送現狀與困境；（二）檢視雙百社工站資源網絡建構及其之間夥伴關係的運作現況；（三）檢視社工、村（居）組織、督導、政府、民間部門的角色與功能；（四）根據研究結果，反思並提出雙百模式未來發展的相關建議。本研究採取質性研究的方法，採用「半結構式訪談」的方式對廣東省珠三角地區部分城市與農村雙百工程副站長/社工、市委外專職社工督導收集資料，共計15人，並通過SWOT分析法來分析雙百社工站運作的內部與外部脈絡。本研究主要發現如下：雙百社工站的實務運作是由多個層面的因素協同作用所推動,受到政策層面、管理層面、實務層面、社會層面與督導層面等多重因素的影响。從目前雙百模式的實際運作來看，它與真正成為理想的社區治理模式之間還有一定的落差，主要原因包括：（一）社工層面：專業自主空間受限、專業能力不足；（二）督導層面：功能發揮受到結構、文化、管理等多方面因素的限制；（三）村居兩委幹部層面：存在過度行政化、缺少共用的規範和價值觀的現象；（四）民間團體層面：草根力量參與度不足、志願者服務形式化現象；（五）政府層面：角色傾向於高效的事務管理而非服務。在對研究結果進行討論與分析後，本研究建立在治理觀點的基礎上，通過SWOT工具，以WO策略、SO策略、WT策略以及ST策略四個方向，從政策面、管理面與實務面提出未來「雙百模式」發展的建議。

關鍵字

雙百社工；社區治理；專業團隊；夥伴關係

並列摘要

In response to the challenges of government-purchased social services, the "Shuangbai Model" has been implemented in the Pearl River Delta region of mainland China. This model involves the direct employment of social workers by the government, who are then stationed within communities to advance governance. This approach raises critical reflections: does it truly signify a shift from management to governance by dismantling the quasi-market mechanism of traditional government-purchased social services, or does it merely remain within the bounds of New Public Management, or even revert to the "bureaucratic-professionalism" paradigm?Based on governance theory, this study explores the gap between the ideal scenarios and the factual operation of the Shuangbai Model in community practice. The primary objectives of this study are: (1)To examine the current state and challenges of welfare delivery under the Shuangbai Social Work Stations within the new governance model; (2)To review the construction of resource networks and the operational status of partnerships among Shuangbai Social Work Stations; (3)To assess the roles and functions of social workers, village (community) organizations, supervisors, government entities, and private sectors; (4)To reflect upon the findings and propose relevant recommendations for the future development of the Shuangbai Model. This study employs qualitative research methods, utilizing semi-structured interviews to gather data from 15 deputy station chiefs/social workers and municipal external professional supervisors in the Shuangbai Project across various urban and rural areas of the Pearl River Delta in Guangdong Province. The SWOT analysis method is used to analyze the internal and external contexts of the Shuangbai Social Work Stations' operations. The main findings of this study are as follows: The practical operation of the Shuangbai Social Work Stations is driven by multiple factors at various levels, influenced by policy, management, practice, society, and supervision. Looking at the current implementation of the Shuangbai model, there is still a gap between its operation and becoming an ideal community governance model. The main reasons include: (1) At the social work level: limited professional autonomy and insufficient professional capacity; (2) At the supervisory level: functionality is restricted by structural, cultural, and managerial factors; (3) At the level of village and neighborhood committee officials: there is an over-administration, and a lack of shared norms and values; (4) At the level of civil groups: insufficient grassroots participation and formalization of volunteer services; (5) At the government level: the role tends to focus on efficient administrative management rather than service provision. Following the discussion and analysis of the research results, this study, grounded in a governance perspective, employs the SWOT tool to propose future development recommendations for the “Shuang-Bai Model” from the policy, management and practical aspects through four strategic directions: WO Strategy, SO Strategy, WT Strategy, and ST Strategy.