公共服务供给中的主体间关系
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摘要
无论是在西方发达国家还是在发展中国家,公共服务供给长期存在的效率低下、覆盖面较低、可及性较差、质量不高以及公众回应性不足等问题。多年来,人们从公共物品和公共服务的性质,政府、市场以及社会作为公共服务供给的承担主体以及公共服务供给的制度安排等多方面来探索公共服务供给的改善,无论是在理论突破还是实践指导方面都取得了很大成绩,但也存在着分析视角过于狭窄而忽略了更加一般意义上的各个主体之间的关系,以及对于中国这样制度建设较为落后的发展中国家的考察较少等问题。当前,急需构建公共服务供给中主体间关系构建的新分析框架,并以此来解读20世纪70年代以来的公共服务供给创新在全世界范围内的展开以及中国近年来的实践。
公共服务供给中的主体间关系重构,其逻辑起点来源于20世纪50年代末公共服务供给中主体角色可分离的理念,这种理念将公共服务供给视为一个过程,进而讨论角色分离的依据,哪些主体适合承担公共服务主体角色分离后的各种职能,而分离后的各种职能又应该以何种方式转交给所选择的主体,并最终讨论承担了各种职能的主体间应该如何形成合作以达致公共服务能够被有效供给的目标。事实上,主体角色分离并不存在意识形态方面的争论,但随之而来的主体的选择、各主体间角色的分配以及主体间关系的重构都存在着争论,主体是选择政府还是私人部门还是社会组织?主体间角色的分配应该以什么样的方式?主体间关系是需要竞争性的还是伙伴关系的?已有文献表明,在公共服务多元主体的供给中,供给主体角色由谁来承担并不重要,竞争性的选择方式从结构上来讲要优于直接的行政授权或垄断的方式,但现实生活中即便是在市场经济发达且社会组织发育较为完善的西方国家也很难在公共服务供给中存在着事实上的竞争,主体间的竞争关系尽管能够带来诸多的好处,但更理想的模式是一种主体间的合作关系。
理想的公共服务供给中主体间关系模式是一种基于竞争性选择的合作模式,但因现实中竞争常常难以保证,因而我们需要考虑在竞争难以实现的状况下的局面。一个基于激励和约束的制度供给,并能够保障制度有效实施,且遵循各个主体主动开展互动以促进合作的权力共享、信息透明、责任分担、合作意愿、基于伙伴关系的绩效评估、合作的稳定性以及公众参与等原则的新的理论框架,可以分析和解释中国公共服务供给的现状。在其中,政府致力于促进与其合作伙伴形成良好的合作关系,以激励和约束制度的供给鼓励多元主体参与到公共服务供给中来并规范其行为,而包含政府在内的所有主体之间的互动的行动则需要依据上述7个主要原则来促进合作的形成和维持。
中国公共服务供给创新案例的分析和比较可以验证这一理论框架。即便在政府缺少可供选择的多元主体并且缺乏竞争的情况下,政府仍然能够通过构建与其伙伴之间的良好关系来保障公共服务能够被有效地供给。同时,它表明了不同的公共服务项目、内容、性质以及依赖于市场或行政命令形成合作关系等因素,会使激励和约束的制度供给有所差异,并且在形成合作的7个主要原则方面的组合和侧重点有所不同。从表面来看,政府与企业合作提供公共服务的两个案例在结构上优于政府与社会组织合作提供公共服务的两个案例,但这也并非是组织性质所带来的差异,而是政府与其伙伴之间的合作关系造成的。政府理念及职能未能发生根本的转变,行政权力干预过多,社会组织的独立权和自主权较弱,公众参与层次较低等问题阻碍了中国公共服务供给中主体问良好关系的构建,而改变这一状况,正是建立健全中国公共服务供给中主体间关系的未来发展方向。
Whether it is in Western countries or in developing countries, exists low long-standing efficiency, low coverage, poor accessibility and quality, lack of public response and other issues of the delivery of public services.For years, people have explorering the way to improve the delivery of public services from the nature of public goods and public services, from the subjects of public service which include government, market and society, from the institutional arrangements for the delivery of public services, which has made great achievements in both the aspects of the theory and practice. However, the analysises are too narrow and ignored the relationship between the various subjects in the more general sense, and lack of the investigation of developing countries such as China which is lagging in institution constrction. Thus urgent need to construct a new analytical framework for the inter-actor relationships of the delivery of public services, and focus on this new perspective of the inter-actor relationships of the delivery of public services to interpret, the delivery of public services innovation since the 1970s and the practice in recent years of China.
The logic starting of reconstruction of the inter-actor relationships of the delivery of public serveces is from the late 1950s, which argued that the role in the public service delivery can be separated, and the delivery of public services was a process, and then discussed the basis for the separation of roles, the way how to confirm the role to undertake the functions of public service, the way how to transfer the functions to the separate subjects, and eventually the subjects how to formate a cooperative to achieve effective delivery of public services. In fact, the separation of the role does not mention the ideological debate, the debate exists in the followed issues, which is the suitable subjects? Distribution of roles between the subjects should be in what way? Inter-actor relationships are competitive or collaborative? Reviewing the literature, who undertake the role in the delivery of public services is not prior, the competitive selection of the subject is superior to the direct administrative authority or monopoly way, but in real life, even in a developed market economy and a more perfect developed society organizations countrie, it is difficult to find the existence of de facto competition in the delivery of public services, despite the competitive relationships between the subjects can bring many benefits, but the ideal model is a inter-actor relationships of collaboration.
The ideal public service delivery mode is a mode of collaboration based on competitive selection, but the reality is often difficult to guarantee the competition, and therefore we need to consider the situation that difficult to achieve the status of competition. With institution based on incentives and constraints, ensuring effective implementation, and following the subjects initiative interaction to promote collaboration in the sharing of power, information transparency, shared responsibility, willingness to cooperate, the stability of performance evaluation based on partnership, public participation in seven main principles of a new theoretical framework to analyze and explain the status of the delivery of public services in China. In which the government is committed to promote the formation of good relations of cooperation with its partners, incentive and restraint system in the supply of multiple subject to encourage participation in public service in the supply and regulating their behavior, and the interaction between subjects should based on the principles to promote the formation and maintenance of collaboration.
Analysis and comparison of the cases of China support the theoretical framework, that is even lacks of alternative plural subjects and competition, the government is still able to construct good relationship with its partners to make sure that public services can be effectively delivered. At the same time, show that the different public services, content, nature and rely on the market or executive order to form collaborative relations and other factors will make the institution of incentives and constraints vary, and the combination and emphasis of the seven main principles will be different. Although both cases, which the government and enterprise collaborative provide public services, are better than the two cases, which government and social organizations collaborative provide public services, but fundamentally, these differences are not from the organizational nature, but the inter-actor relationships between the government and its partners. The government idea and the functions fails to change fundamental, administrative power intervention too much, less independence and autonomy of social organizations, public participation in lower level and other facts prevented the good inter-actor relationships of the Chinese delivery of public services, which is also the future direction of development.
公共服务供给中的主体间关系重构,其逻辑起点来源于20世纪50年代末公共服务供给中主体角色可分离的理念,这种理念将公共服务供给视为一个过程,进而讨论角色分离的依据,哪些主体适合承担公共服务主体角色分离后的各种职能,而分离后的各种职能又应该以何种方式转交给所选择的主体,并最终讨论承担了各种职能的主体间应该如何形成合作以达致公共服务能够被有效供给的目标。事实上,主体角色分离并不存在意识形态方面的争论,但随之而来的主体的选择、各主体间角色的分配以及主体间关系的重构都存在着争论,主体是选择政府还是私人部门还是社会组织?主体间角色的分配应该以什么样的方式?主体间关系是需要竞争性的还是伙伴关系的?已有文献表明,在公共服务多元主体的供给中,供给主体角色由谁来承担并不重要,竞争性的选择方式从结构上来讲要优于直接的行政授权或垄断的方式,但现实生活中即便是在市场经济发达且社会组织发育较为完善的西方国家也很难在公共服务供给中存在着事实上的竞争,主体间的竞争关系尽管能够带来诸多的好处,但更理想的模式是一种主体间的合作关系。
理想的公共服务供给中主体间关系模式是一种基于竞争性选择的合作模式,但因现实中竞争常常难以保证,因而我们需要考虑在竞争难以实现的状况下的局面。一个基于激励和约束的制度供给,并能够保障制度有效实施,且遵循各个主体主动开展互动以促进合作的权力共享、信息透明、责任分担、合作意愿、基于伙伴关系的绩效评估、合作的稳定性以及公众参与等原则的新的理论框架,可以分析和解释中国公共服务供给的现状。在其中,政府致力于促进与其合作伙伴形成良好的合作关系,以激励和约束制度的供给鼓励多元主体参与到公共服务供给中来并规范其行为,而包含政府在内的所有主体之间的互动的行动则需要依据上述7个主要原则来促进合作的形成和维持。
中国公共服务供给创新案例的分析和比较可以验证这一理论框架。即便在政府缺少可供选择的多元主体并且缺乏竞争的情况下,政府仍然能够通过构建与其伙伴之间的良好关系来保障公共服务能够被有效地供给。同时,它表明了不同的公共服务项目、内容、性质以及依赖于市场或行政命令形成合作关系等因素,会使激励和约束的制度供给有所差异,并且在形成合作的7个主要原则方面的组合和侧重点有所不同。从表面来看,政府与企业合作提供公共服务的两个案例在结构上优于政府与社会组织合作提供公共服务的两个案例,但这也并非是组织性质所带来的差异,而是政府与其伙伴之间的合作关系造成的。政府理念及职能未能发生根本的转变,行政权力干预过多,社会组织的独立权和自主权较弱,公众参与层次较低等问题阻碍了中国公共服务供给中主体问良好关系的构建,而改变这一状况,正是建立健全中国公共服务供给中主体间关系的未来发展方向。
Whether it is in Western countries or in developing countries, exists low long-standing efficiency, low coverage, poor accessibility and quality, lack of public response and other issues of the delivery of public services.For years, people have explorering the way to improve the delivery of public services from the nature of public goods and public services, from the subjects of public service which include government, market and society, from the institutional arrangements for the delivery of public services, which has made great achievements in both the aspects of the theory and practice. However, the analysises are too narrow and ignored the relationship between the various subjects in the more general sense, and lack of the investigation of developing countries such as China which is lagging in institution constrction. Thus urgent need to construct a new analytical framework for the inter-actor relationships of the delivery of public services, and focus on this new perspective of the inter-actor relationships of the delivery of public services to interpret, the delivery of public services innovation since the 1970s and the practice in recent years of China.
The logic starting of reconstruction of the inter-actor relationships of the delivery of public serveces is from the late 1950s, which argued that the role in the public service delivery can be separated, and the delivery of public services was a process, and then discussed the basis for the separation of roles, the way how to confirm the role to undertake the functions of public service, the way how to transfer the functions to the separate subjects, and eventually the subjects how to formate a cooperative to achieve effective delivery of public services. In fact, the separation of the role does not mention the ideological debate, the debate exists in the followed issues, which is the suitable subjects? Distribution of roles between the subjects should be in what way? Inter-actor relationships are competitive or collaborative? Reviewing the literature, who undertake the role in the delivery of public services is not prior, the competitive selection of the subject is superior to the direct administrative authority or monopoly way, but in real life, even in a developed market economy and a more perfect developed society organizations countrie, it is difficult to find the existence of de facto competition in the delivery of public services, despite the competitive relationships between the subjects can bring many benefits, but the ideal model is a inter-actor relationships of collaboration.
The ideal public service delivery mode is a mode of collaboration based on competitive selection, but the reality is often difficult to guarantee the competition, and therefore we need to consider the situation that difficult to achieve the status of competition. With institution based on incentives and constraints, ensuring effective implementation, and following the subjects initiative interaction to promote collaboration in the sharing of power, information transparency, shared responsibility, willingness to cooperate, the stability of performance evaluation based on partnership, public participation in seven main principles of a new theoretical framework to analyze and explain the status of the delivery of public services in China. In which the government is committed to promote the formation of good relations of cooperation with its partners, incentive and restraint system in the supply of multiple subject to encourage participation in public service in the supply and regulating their behavior, and the interaction between subjects should based on the principles to promote the formation and maintenance of collaboration.
Analysis and comparison of the cases of China support the theoretical framework, that is even lacks of alternative plural subjects and competition, the government is still able to construct good relationship with its partners to make sure that public services can be effectively delivered. At the same time, show that the different public services, content, nature and rely on the market or executive order to form collaborative relations and other factors will make the institution of incentives and constraints vary, and the combination and emphasis of the seven main principles will be different. Although both cases, which the government and enterprise collaborative provide public services, are better than the two cases, which government and social organizations collaborative provide public services, but fundamentally, these differences are not from the organizational nature, but the inter-actor relationships between the government and its partners. The government idea and the functions fails to change fundamental, administrative power intervention too much, less independence and autonomy of social organizations, public participation in lower level and other facts prevented the good inter-actor relationships of the Chinese delivery of public services, which is also the future direction of development.
引文
11参见：李慧凤,许义平：《社区合作治理实证研究》.中国社会出版社2009年版,第153页。
12参见：宁波市海曙区星光敬老协会。居家养老服务社会化探索[R].2005年10月。
13参见宁波市海曙区星光敬老协会：《居家养老服务社回话探索》.2005年10月版。
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