论合作型政府:一个政府改革的新理论
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摘要
过去的三十多年,指导世界各国政府改革实践的核心理论是竞争型政府理念,它强调分权、单一功能组织、政府竞争和绩效导向等,这些改革实践在很大程度上使得政府更有效率、更好回应民众和更多地推动了经济社会发展。不过,竞争型政府也导致了一系列的负面效应,包括中央政府对于组织的控制与协调能力下降、重复建设和公共物品供给能力下降等。新的时代和新的社会需要新的政府理论,一些纠正竞争型政府的思潮和理念正在各国兴起,其有代表性的理论包括整体性政府和合作治理等。在上述理论基础上,提出一个更为一般性的分析框架来整合不同的理论改革主张,认为合作型政府更适合作为竞争型政府的替代范式来指导未来政府改革实践。合作型政府范式从内部与外部、组织与组织间两个维度出发,将合作型政府的表现形式划分为四种类型,即合作生产、合作制组织、整体性政府和合作治理。合作生产强调政府与公民合作,合作制组织主张政府内部的合作,整体性政府重视不同类型、不同层级政府之间合作,合作治理则突出政府与非营利组织、企业等组织之间合作。合作型政府的图景正在形成中,值得我们重视。
On the Past thirty years,the core idea guiding the public sector reforms was the competitive government paradigm,which focused on the structural devolution,single purpose functions,government competitive and performance-focus.These reforms practices improve the government efficiency,respond the citizens’needs and promote the economic developments.Yet the competitive government also produced some negative feedbacks,which include the slow down of control and coordinate abilities of central governments and administrative organizations,repeated constructions and low-level provision of public goods.In the new era and society,we need a new science of government.In fact,the countries around the world proposed some new ideas and models of correcting the problems produced by competitive government.Among them,the whole-of-government approach and collaborative approach are the most important ones.In this article we try to propose a more general framework for integrating different theoretical approaches.We argue that the cooperative government paradigm could substitute the competitive government paradigm.From the perspective of cooperative government,we can distinguish four different dimensions of cooperative government according the two dimensions,namely the inside and outside dimension,the organizational and inter-organizational dimension.So we can find the four types of cooperative government,which include co-production,cooperative organizations,the Whole-of-Governments,
and collaborative governance.Co-production focused on the cooperative relationship between government and citizens.Cooperative organizations emphasized on the intra-organizational cooperation.Whole-of-Governm ents addressed with the inter-governmental cooperation.Collaborative governance adhered to the cooperation among the government agencies and outside organizational actors.An image of Cooperative Government comes into being.We should pay attention to the possible transition in the government reforms.
On the Past thirty years,the core idea guiding the public sector reforms was the competitive government paradigm,which focused on the structural devolution,single purpose functions,government competitive and performance-focus.These reforms practices improve the government efficiency,respond the citizens’needs and promote the economic developments.Yet the competitive government also produced some negative feedbacks,which include the slow down of control and coordinate abilities of central governments and administrative organizations,repeated constructions and low-level provision of public goods.In the new era and society,we need a new science of government.In fact,the countries around the world proposed some new ideas and models of correcting the problems produced by competitive government.Among them,the whole-of-government approach and collaborative approach are the most important ones.In this article we try to propose a more general framework for integrating different theoretical approaches.We argue that the cooperative government paradigm could substitute the competitive government paradigm.From the perspective of cooperative government,we can distinguish four different dimensions of cooperative government according the two dimensions,namely the inside and outside dimension,the organizational and inter-organizational dimension.So we can find the four types of cooperative government,which include co-production,cooperative organizations,the Whole-of-Governments,
and collaborative governance.Co-production focused on the cooperative relationship between government and citizens.Cooperative organizations emphasized on the intra-organizational cooperation.Whole-of-Governm ents addressed with the inter-governmental cooperation.Collaborative governance adhered to the cooperation among the government agencies and outside organizational actors.An image of Cooperative Government comes into being.We should pay attention to the possible transition in the government reforms.
引文
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[2]Wilson,Woodrow.The Study of Administration[J].Political Science Quarterly,1887,2(2):197—222.
[3]韦伯.支配社会学[M].桂林:广西师范大学出版社,2010.
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[14]林慕华.参与式预算中的群众议事员:舞台、角色与演绎——基于盐津案例的实证研究[J].公共行政评论,2014,(5):66—87.
[15]贾西津.参与式预算的模式:云南盐津案例[J].公共行政评论,2014,(5):47—65.
[16]苟燕楠,韩福国.参与程序与预算认同:基于“盐津模式”与“温岭模式”的比较分析[J].公共行政评论,2014,(5):35—46.
[17]马骏.盐津县“群众参与预算”:国家治理现代化的基层探索[J].公共行政评论,2014,(5):5—34.
[18]张康之.为了人的共生共在[M].北京:人民出版社,2016.
[19]塔洛克.官僚体制的政治[M].北京:商务印书馆,2010.
[20]O’Leary,R.,Bingham,L.B.The Collaborative Public Manager:New Ideas for the Twenty-first Century[M].Washington:Georgetown UniversityPress,2009.
[21]尤金·巴达赫.跨部门合作——管理“巧匠”的理论与实践[M].北京:北京大学出版社,2011.
[22]朱春奎,毛万磊.议事协调机构、部际联席会议和部门协议:中国政府部门横向协调机制研究[J].行政论坛,2015,22(6):39—44.
[23]马捷,锁利铭,陈斌.从合作区到区域合作网络:结构、路径与演进——来自“9+2”合作区191项府际协议的网络分析[J].中国软科学,2014,(12):79—92.
[24]斯蒂芬·戈德史密斯,威廉.D.埃格斯.网络化治理:公共部门的新形态[M].北京:北京大学出版社,2008.
[25]Arun Agrawal,Maria Carmen Lemos.A GreenerRevolution in the Making:EnvironmentalGovernance in the 21st Century[J].Environment Science&Policy for Sustainable Development,2007,49(5):36—45.
[26]苏里.跨界水污染的合理模式选择与构建——以苏浙边界王江泾流域为例[D].南京大学学位论文,2010.
[27]范永茂,殷玉敏.跨界环境问题的合作治理模式选择——理论讨论和三个案例[J].公共管理学报,2016,(2):63—75.
[28]汪伟全.空气污染的跨域合作治理研究——以北京地区为例[J].公共管理学报,2014,(1):55—64.
[29]梅文智.关于中关村国家自主创新示范区核心区高新企业“产学研”合作的调查研究[J].兰州学刊,2010,(9):28—32.
[30]李文钊,毛寿龙.中国政府改革:基本逻辑与发展趋势[J].管理世界,2010,(8):44—58.
(1)这一词汇主要是受“找回国家”(Bring State Back In)的启发。“找回国家”由彼得·埃文斯、迪特里希·鲁施迈耶和西达·斯考克波等提出,他们主编了《找回国家》一书,重新讨论了国家在经济发展、社会再分配、国际关系和社会治理中作用。
(2)“等待它的生命到来”借用了Cook对于断点回归设计历史回顾时的用法,强调一种新的设计被发明,随后研究者放弃了这一研究设计,而经过很长的等待之后,断点回归设计才重新获得新的生命,更多的人接受了间断回归的设计。同样,合作生产理论也经历了类似过程。
[2]Wilson,Woodrow.The Study of Administration[J].Political Science Quarterly,1887,2(2):197—222.
[3]韦伯.支配社会学[M].桂林:广西师范大学出版社,2010.
[4]Ewan Ferlie,Laurence E.Lynn,Christopher Pollitt.The Oxford Handbook of Public Management[M].New York:Oxford University Press,2005.
[5]Breton,A.Competitive Governments:An Economic Theory of Politics and Public Finance[M].London:Cambridge University Press,1996.
[6]周业安,冯兴元,赵坚毅.地方政府竞争与市场秩序的重构[J].中国社会科学,2004,(1):56—65.
[7]周业安,李涛.地方政府竞争和经济增长:基于我国省级面板数据的空间计量经济学研究[M].北京:中国人民大学出版社,2013.
[8]傅勇,张晏.中国式分权与财政支出结构偏向:为增长而竞争的代价[J].管理世界,2007,(3):4—12.
[9]Ostrom,E.Crossing the Great Divide:Coproduction,Synergy,and Development[J].World Developm ent,1996,24(6):1073—1087.
[10]Normann,R.Service Management[M].Chichester:Wiley,1984.
[11]Aligica,Paul Dragos,Tarko,Vlad.Co-production,Polycentricity,and Value Heterogeneity:theOstroms’Public Choice Institutionalism Revisited[J].American Political Science Review,2013,107(4):726—741.
[12]Arnstein,Sherry R.A Ladder of CitizenParticipation[J].Journal of the American Institute of Planners,1969,35(4):216—224.
[13]Brandsen,T.,Honingh,M.DistinguishingDifferent Types of Coproduction:a ConceptualAnalysis Based on the Classical Definitions[J].Public Administration Review,2016,76(3):427—435.
[14]林慕华.参与式预算中的群众议事员:舞台、角色与演绎——基于盐津案例的实证研究[J].公共行政评论,2014,(5):66—87.
[15]贾西津.参与式预算的模式:云南盐津案例[J].公共行政评论,2014,(5):47—65.
[16]苟燕楠,韩福国.参与程序与预算认同:基于“盐津模式”与“温岭模式”的比较分析[J].公共行政评论,2014,(5):35—46.
[17]马骏.盐津县“群众参与预算”:国家治理现代化的基层探索[J].公共行政评论,2014,(5):5—34.
[18]张康之.为了人的共生共在[M].北京:人民出版社,2016.
[19]塔洛克.官僚体制的政治[M].北京:商务印书馆,2010.
[20]O’Leary,R.,Bingham,L.B.The Collaborative Public Manager:New Ideas for the Twenty-first Century[M].Washington:Georgetown UniversityPress,2009.
[21]尤金·巴达赫.跨部门合作——管理“巧匠”的理论与实践[M].北京:北京大学出版社,2011.
[22]朱春奎,毛万磊.议事协调机构、部际联席会议和部门协议:中国政府部门横向协调机制研究[J].行政论坛,2015,22(6):39—44.
[23]马捷,锁利铭,陈斌.从合作区到区域合作网络:结构、路径与演进——来自“9+2”合作区191项府际协议的网络分析[J].中国软科学,2014,(12):79—92.
[24]斯蒂芬·戈德史密斯,威廉.D.埃格斯.网络化治理:公共部门的新形态[M].北京:北京大学出版社,2008.
[25]Arun Agrawal,Maria Carmen Lemos.A GreenerRevolution in the Making:EnvironmentalGovernance in the 21st Century[J].Environment Science&Policy for Sustainable Development,2007,49(5):36—45.
[26]苏里.跨界水污染的合理模式选择与构建——以苏浙边界王江泾流域为例[D].南京大学学位论文,2010.
[27]范永茂,殷玉敏.跨界环境问题的合作治理模式选择——理论讨论和三个案例[J].公共管理学报,2016,(2):63—75.
[28]汪伟全.空气污染的跨域合作治理研究——以北京地区为例[J].公共管理学报,2014,(1):55—64.
[29]梅文智.关于中关村国家自主创新示范区核心区高新企业“产学研”合作的调查研究[J].兰州学刊,2010,(9):28—32.
[30]李文钊,毛寿龙.中国政府改革:基本逻辑与发展趋势[J].管理世界,2010,(8):44—58.
(1)这一词汇主要是受“找回国家”(Bring State Back In)的启发。“找回国家”由彼得·埃文斯、迪特里希·鲁施迈耶和西达·斯考克波等提出,他们主编了《找回国家》一书,重新讨论了国家在经济发展、社会再分配、国际关系和社会治理中作用。
(2)“等待它的生命到来”借用了Cook对于断点回归设计历史回顾时的用法,强调一种新的设计被发明,随后研究者放弃了这一研究设计,而经过很长的等待之后,断点回归设计才重新获得新的生命,更多的人接受了间断回归的设计。同样,合作生产理论也经历了类似过程。