新公共治理理论及对中国公共服务绩效评估的影响
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摘要
斯蒂芬·奥斯本在《新公共治理?》一书中提出了"新公共治理"一说。那么,新公共治理究竟"新"在何处?本文从这一问题出发,对新公共治理范式从理论基础、资源分配机制、价值基础、系统结构、政府角色等方面与传统公共行政和新公共管理进行了比较。在此基础上,重点探究了在新公共治理理论下公共服务绩效评估在分析单位、评价维度和公共价值方面发生的变化,并对我国公共服务绩效评估变迁的可能性进行了分析。文章认为,新公共治理范式下公共服务绩效评估的分析单位由个体转为系统,关系绩效成为新的评价维度,政府绩效的合法性和公共价值成为新的关注焦点。我国政府改革为多元主体共同治理的格局奠定了一定的基础,但是系统绩效、关系绩效和公共价值还远未成为地方政府绩效评估的关注焦点。
While New Public Administration, New Public Management and New Public Services successively emerged in the recent decades of public administration reform, Stephen Osborne proposed the "New Public Governance" in his published book: The New Public Governance: Emerging Perspectives on the Theory and Practice Of Public Governance. What is the key to the New Public Governance?Based upon the question, the paper conducts a comparative analysis in terms of theoretical basis, resource allocation mechanism, value basis, system structure, and government role between New Public Governance, Public Administration, and New Public Management. Then,it discusses the change of public service performance evaluation in the aspects of analysis unit, evaluation dimension and public value under the paradigm of New Public Governance, and explores the possibility of China's government performance evaluation reform. It ar-gues that, under the paradigm of New Public Governance, the analysis unit of public service performance evaluation is system rather than individual, relational performance becomes the new evaluation dimension, and the legitimacy of government performance and the achieve-ment of public value turn into the new focus. China's reforms have laid the foundation for the formation of multiple governance actors' governing, but system performance, relational performance and public value haven't been the focus of local government performance evaluation.
While New Public Administration, New Public Management and New Public Services successively emerged in the recent decades of public administration reform, Stephen Osborne proposed the "New Public Governance" in his published book: The New Public Governance: Emerging Perspectives on the Theory and Practice Of Public Governance. What is the key to the New Public Governance?Based upon the question, the paper conducts a comparative analysis in terms of theoretical basis, resource allocation mechanism, value basis, system structure, and government role between New Public Governance, Public Administration, and New Public Management. Then,it discusses the change of public service performance evaluation in the aspects of analysis unit, evaluation dimension and public value under the paradigm of New Public Governance, and explores the possibility of China's government performance evaluation reform. It ar-gues that, under the paradigm of New Public Governance, the analysis unit of public service performance evaluation is system rather than individual, relational performance becomes the new evaluation dimension, and the legitimacy of government performance and the achieve-ment of public value turn into the new focus. China's reforms have laid the foundation for the formation of multiple governance actors' governing, but system performance, relational performance and public value haven't been the focus of local government performance evaluation.
引文
[1]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016.
[2]Wilson,W.The Study of Administration[J].Political Science Quarterly,1887,2(2):197-222.
[3]马克斯·韦伯著,林荣远译.经济与社会(上卷)[M].北京:商务印书馆,1997:238.
[4]Allison,G.T.Public and Private Administrative Leadership:Are They Fundamentally Alike in All Unimportant Respects[A].in T.J.Sergiovanni&J.E.Corbally(eds).Leadership and Organizational Culture:New Perspectives on Administrative Theory and Practice[C].Urbana,IL:University of Illinois Press,1986:214.
[5]Brammer,S.,Jackson,G.,&Matten,D.Corporate Social Responsibility and Institutional Theory:New Perspectives on Private Governance[J].Socio-Economic Review,2012,10(1):3-28.
[6]马克斯·韦伯著,林荣远译.经济与社会(上卷)[M].北京:商务印书馆,1997:248.
[7]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016:293.
[8]Franco L.M.,Bennett S.,&Kanfer R.Health Sector Reform and Public Sector Health Worker Motivation:A Conceptual Framework[J].Social Science&Medicine,2002,54(8):1262.
[9]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016:8.
[10]戴维·奥斯本和特德·盖布勒著,周敦仁等译.改革政府:企业家精神如何改革着公共部门[M].上海:上海译文出版社,2012:9.
[11]Majone,G.The Rise of the Regulatory State in Europe[J].West European Politics,1994,17(3):77-101.
[12]Majone,G.From the Positive to the Regulatory State:Causes and Consequences of Changes in the Mode of Governance[J].Journal of Public Policy,1997,17(2):139-167.
[13]Loughlin,M.,&Scott,C.The Regulatory State[A].in P.Dunleavy et al.(eds).Developments in British Politics 5[C].New York:St.Martin's Press,1997:205-219.
[14]Mc Gowan,F.,&Wallace H.Towards a European Regulatory State[J].Journal of European Public Policy,1996,3(4):560-576.
[15]Moran,M.Understanding the Regulatory State[J].British Journal of Political Science,2002,32(2):391-413.
[16]Denhardt J.V.,&Denhardt R.B.著,丁煌译.新公共服务[M].北京:中国人民大学出版社,2014.
[17]竺乾威.新公共治理:新的治理模式?[J].中国行政管理,2016(7):138.
[18]Hood,C.A Public Management for All Seasons?[J].Public Administration,1991,69:3-19.
[19]Ouchi W.G.A Conceptual Framework for the Design of Organizational Control Mechanisms[A].in C.Emmanuel et al.(eds).Readings in Accounting for Management Control[C].Boston:Springer US,1992:63-82.
[20]Broadbent,J.,&Richard L.Public Service Professionals and the New Public Management[A].in K.Mc Laughlin et al.(eds).New Public Management:Current Trends and Future Prospects[C].Abingdon:Routledge,2002:95-108.
[21]O'Toole,L.,Meier,K.,&Nicholson-Crotty,S.Managing Upward,Downward and Outward:Networks,Hierarchical Relationships and Performance[J].Public Management Review,2005,7(1):45-68.
[22]Provan,K.G.,&Kenis,P.Modes of Network Governance:Structure,Management,and Effectiveness[J].Journal of Public Administration Research and Theory,2008,18(2):229-252.
[23]Mandell,M.,&Keast,R.Evaluating Network Arrangements:Toward Revised Performance Measures[J].Public Performance&Management Review,2007,30(4):575.
[24]Klijn,E.H.,&Koppenjan,J.F.Public Management and Policy Networks:Foundations of a Network Approach to Governance[J].Public Management an International Journal of Research and Theory,2000,2(2):135-158.
[25]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016:421-424.
[26]Borman W.C.,Hanson M.,&Hedge,J.Personal Selection[J].Annual Review Psychology,1997,48(1):299-337.
[27]Organ,D.W.Organizational Citizenship Behavior:It's Construct Clean-Up Time[J].Human Performance,1997,10(2):85-97.
[28]Coleman,V.I.&Borman,W.C.Investigating the Underlying Structure of the Citizenship Performance Domain[J].Human Resource Management Review,2000,10(1):25-44.
[29]Macneil,I.R.Contracts:Adjustment of Long-Term Economic Relations under Classical,Neoclassical,and Relational Contract Law[J].Northwestern University Law Review,1976,72(6):854-905.
[30]Zaheer,A.,&Venkatraman,N.Relational Governance as an Interorganizational Strategy:An Empirical Test of the Role of Trust in Economic Exchange[J].Strategic Management Journal,1995,16(5):373-392.
[31]Claro,D.P.,Hagelaar,G.,&Omta,O.The Determinants of Relational Governance and Performance:How to Manage Business Relationships?[J].Industrial Marketing Management,2003,32(8):703-716.
[32]Deng,C.P.,Mao,J.Y.,&Wang,G.S.An Empirical Study on the Source Of Vendors'Relational Performance in Offshore Information Systems Outsourcing[J].International Journal of Information Management,2013,33(1):10-19.
[33]Stank,T.P.,Goldsby,T.J.,Vickery,S.K.,&Savitskie,K.Logistics Service Performance:Estimating its Influence on Market Share[J].Journal of Business Logistics,2003,24(1):27-55.
[34]Chen,Y.C.,Li,P.C.,&Arnold,T.J.Effects of Collaborative Communication on the Development of Market-Relating Capabilities and Relational Performance Metrics in industrial Markets[J].Industrial Marketing Management,2013,42(8):1181-1191.
[35]Shockley,J.,&Turner,T.A Relational Performance Model for Developing Innovation and Long-Term Orientation in Retail Franchise Organizations[J].Journal of Retailing and Consumer Services,2016,32:175-188.
[36]Parasuraman,A.,Zeithaml V.A.,&Berry L.L.A Conceptual Model of Service Quality and Its Implications for Future Research[J].Journal of Marketing,1985,49(4):41-50.
[37]Mandell,M.,&Keast,R.Evaluating Network Arrangements:Toward Revised Performance Measures[J].Public Performance&Management Review,2007,30(4):575.
[38]Ansell,C.,&Gash,A.Collaborative Governance in Theory and Practice[J].Journal of Public Administration Research and Theory,2008,18(4):543-571.
[39]Reinicke,W.H.,Deng,F.,Witte,J.M.,Benner,T.,&Whitaker,B.Critical Choices:The United Nations,Networks,and the Future of Global Governance[M].Ottawa:IDRC,2000.
[40]Moore,M.H.Creating Public Value:Strategic Management in Government[M].Cambridge:Harvard University Press,1995.
[41]Moore,M.H.Public Value Accounting:Establishing the Philosophical Basis[J].Public Administration Review,2014,74(4):465-477.
[42]J覫rgensen,T.B.&Bozeman,B.Public Values:An Inventory[J].Administration&Society,2007,39(3):354-381.
[43]Witesman,E.From Public Values to Public Value and Back Again[A].Presented at the Public Values Workshop hosted by the Center for Organization Research and Design at Arizona State University January 7-8,2016.
[44]Bao,G.,Wang,X.,Larsen,G.L.,&Morgan,D.F.Beyond New Public Governance:A Value-Based Global Framework for Performance Management,Governance,and Leadership[J].Administration&Society,2013,45(4):443-467.
[45]包国宪,道格拉斯·摩根.政府绩效管理学:以公共价值为基础的政府绩效治理理论与方法[M].北京:高等教育出版社,2015.
[46]Osborne S.P.,&Strokosch K.It Takes Two to Tango?Understanding the Co-production of Public Services by Integrating the Services Management and Public Administration Perspectives[J].British Journal of Management,2013:S31-S47.
[47]常纪文.国家治理体系:国际概念与中国内涵[J].决策与信息,2014(9):36-38.
[48]王浦劬.国家治理、政府治理和社会治理的含义及其相互关系[J].国家行政学院学报,2014(3):11-17.
[49]杨光斌.关于国家治理能力的一般理论———探索世界政治(比较政治)研究的新范式[J].教学与研究,2017,51(1):5-22.
[50]伍斌编著.政府绩效管理:理论与实践的双重变奏[M].北京:北京大学出版社,2017:267.
[51]包国宪,道格拉斯·摩根.政府绩效管理学[M].北京:高等教育出版社,2015:20.
[52]Hyndman,N.,&Liguori,M.Public Sector Reforms:Changing Contours on an NPM Landscape[J].Financial Accountability&Management,2016,32(1):5-32.
(1)奥斯本认为,公共治理最初只是公共行政或新公共管理的一个要素。
(2)英文为agencification,英国在下一步行动方案改革中成立了大量独立、半独立的机构,这些机构虽然主要由政府财政资助,但是具有相对的自治权。
(3)为了与关系绩效(relational performance)相区别,下文统一翻译为情境绩效。
(4)实际上,在20世纪60年代末明尼布鲁克会议之后诞生的新公共行政已经对政治-行政二分提出了批评。
(5)详见http://www.heritage.org/index/ranking。
(6)详见http://www.hzpolice.gov.cn/GOVHtml/201511/16/577e5378-6ac6-4851-b24b-c58a7306af79.html。
[2]Wilson,W.The Study of Administration[J].Political Science Quarterly,1887,2(2):197-222.
[3]马克斯·韦伯著,林荣远译.经济与社会(上卷)[M].北京:商务印书馆,1997:238.
[4]Allison,G.T.Public and Private Administrative Leadership:Are They Fundamentally Alike in All Unimportant Respects[A].in T.J.Sergiovanni&J.E.Corbally(eds).Leadership and Organizational Culture:New Perspectives on Administrative Theory and Practice[C].Urbana,IL:University of Illinois Press,1986:214.
[5]Brammer,S.,Jackson,G.,&Matten,D.Corporate Social Responsibility and Institutional Theory:New Perspectives on Private Governance[J].Socio-Economic Review,2012,10(1):3-28.
[6]马克斯·韦伯著,林荣远译.经济与社会(上卷)[M].北京:商务印书馆,1997:248.
[7]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016:293.
[8]Franco L.M.,Bennett S.,&Kanfer R.Health Sector Reform and Public Sector Health Worker Motivation:A Conceptual Framework[J].Social Science&Medicine,2002,54(8):1262.
[9]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016:8.
[10]戴维·奥斯本和特德·盖布勒著,周敦仁等译.改革政府:企业家精神如何改革着公共部门[M].上海:上海译文出版社,2012:9.
[11]Majone,G.The Rise of the Regulatory State in Europe[J].West European Politics,1994,17(3):77-101.
[12]Majone,G.From the Positive to the Regulatory State:Causes and Consequences of Changes in the Mode of Governance[J].Journal of Public Policy,1997,17(2):139-167.
[13]Loughlin,M.,&Scott,C.The Regulatory State[A].in P.Dunleavy et al.(eds).Developments in British Politics 5[C].New York:St.Martin's Press,1997:205-219.
[14]Mc Gowan,F.,&Wallace H.Towards a European Regulatory State[J].Journal of European Public Policy,1996,3(4):560-576.
[15]Moran,M.Understanding the Regulatory State[J].British Journal of Political Science,2002,32(2):391-413.
[16]Denhardt J.V.,&Denhardt R.B.著,丁煌译.新公共服务[M].北京:中国人民大学出版社,2014.
[17]竺乾威.新公共治理:新的治理模式?[J].中国行政管理,2016(7):138.
[18]Hood,C.A Public Management for All Seasons?[J].Public Administration,1991,69:3-19.
[19]Ouchi W.G.A Conceptual Framework for the Design of Organizational Control Mechanisms[A].in C.Emmanuel et al.(eds).Readings in Accounting for Management Control[C].Boston:Springer US,1992:63-82.
[20]Broadbent,J.,&Richard L.Public Service Professionals and the New Public Management[A].in K.Mc Laughlin et al.(eds).New Public Management:Current Trends and Future Prospects[C].Abingdon:Routledge,2002:95-108.
[21]O'Toole,L.,Meier,K.,&Nicholson-Crotty,S.Managing Upward,Downward and Outward:Networks,Hierarchical Relationships and Performance[J].Public Management Review,2005,7(1):45-68.
[22]Provan,K.G.,&Kenis,P.Modes of Network Governance:Structure,Management,and Effectiveness[J].Journal of Public Administration Research and Theory,2008,18(2):229-252.
[23]Mandell,M.,&Keast,R.Evaluating Network Arrangements:Toward Revised Performance Measures[J].Public Performance&Management Review,2007,30(4):575.
[24]Klijn,E.H.,&Koppenjan,J.F.Public Management and Policy Networks:Foundations of a Network Approach to Governance[J].Public Management an International Journal of Research and Theory,2000,2(2):135-158.
[25]Osborne,S.P.著,包国宪等译.新公共治理?——公共治理理论和实践方面的新观点[M].北京:科学出版社,2016:421-424.
[26]Borman W.C.,Hanson M.,&Hedge,J.Personal Selection[J].Annual Review Psychology,1997,48(1):299-337.
[27]Organ,D.W.Organizational Citizenship Behavior:It's Construct Clean-Up Time[J].Human Performance,1997,10(2):85-97.
[28]Coleman,V.I.&Borman,W.C.Investigating the Underlying Structure of the Citizenship Performance Domain[J].Human Resource Management Review,2000,10(1):25-44.
[29]Macneil,I.R.Contracts:Adjustment of Long-Term Economic Relations under Classical,Neoclassical,and Relational Contract Law[J].Northwestern University Law Review,1976,72(6):854-905.
[30]Zaheer,A.,&Venkatraman,N.Relational Governance as an Interorganizational Strategy:An Empirical Test of the Role of Trust in Economic Exchange[J].Strategic Management Journal,1995,16(5):373-392.
[31]Claro,D.P.,Hagelaar,G.,&Omta,O.The Determinants of Relational Governance and Performance:How to Manage Business Relationships?[J].Industrial Marketing Management,2003,32(8):703-716.
[32]Deng,C.P.,Mao,J.Y.,&Wang,G.S.An Empirical Study on the Source Of Vendors'Relational Performance in Offshore Information Systems Outsourcing[J].International Journal of Information Management,2013,33(1):10-19.
[33]Stank,T.P.,Goldsby,T.J.,Vickery,S.K.,&Savitskie,K.Logistics Service Performance:Estimating its Influence on Market Share[J].Journal of Business Logistics,2003,24(1):27-55.
[34]Chen,Y.C.,Li,P.C.,&Arnold,T.J.Effects of Collaborative Communication on the Development of Market-Relating Capabilities and Relational Performance Metrics in industrial Markets[J].Industrial Marketing Management,2013,42(8):1181-1191.
[35]Shockley,J.,&Turner,T.A Relational Performance Model for Developing Innovation and Long-Term Orientation in Retail Franchise Organizations[J].Journal of Retailing and Consumer Services,2016,32:175-188.
[36]Parasuraman,A.,Zeithaml V.A.,&Berry L.L.A Conceptual Model of Service Quality and Its Implications for Future Research[J].Journal of Marketing,1985,49(4):41-50.
[37]Mandell,M.,&Keast,R.Evaluating Network Arrangements:Toward Revised Performance Measures[J].Public Performance&Management Review,2007,30(4):575.
[38]Ansell,C.,&Gash,A.Collaborative Governance in Theory and Practice[J].Journal of Public Administration Research and Theory,2008,18(4):543-571.
[39]Reinicke,W.H.,Deng,F.,Witte,J.M.,Benner,T.,&Whitaker,B.Critical Choices:The United Nations,Networks,and the Future of Global Governance[M].Ottawa:IDRC,2000.
[40]Moore,M.H.Creating Public Value:Strategic Management in Government[M].Cambridge:Harvard University Press,1995.
[41]Moore,M.H.Public Value Accounting:Establishing the Philosophical Basis[J].Public Administration Review,2014,74(4):465-477.
[42]J覫rgensen,T.B.&Bozeman,B.Public Values:An Inventory[J].Administration&Society,2007,39(3):354-381.
[43]Witesman,E.From Public Values to Public Value and Back Again[A].Presented at the Public Values Workshop hosted by the Center for Organization Research and Design at Arizona State University January 7-8,2016.
[44]Bao,G.,Wang,X.,Larsen,G.L.,&Morgan,D.F.Beyond New Public Governance:A Value-Based Global Framework for Performance Management,Governance,and Leadership[J].Administration&Society,2013,45(4):443-467.
[45]包国宪,道格拉斯·摩根.政府绩效管理学:以公共价值为基础的政府绩效治理理论与方法[M].北京:高等教育出版社,2015.
[46]Osborne S.P.,&Strokosch K.It Takes Two to Tango?Understanding the Co-production of Public Services by Integrating the Services Management and Public Administration Perspectives[J].British Journal of Management,2013:S31-S47.
[47]常纪文.国家治理体系:国际概念与中国内涵[J].决策与信息,2014(9):36-38.
[48]王浦劬.国家治理、政府治理和社会治理的含义及其相互关系[J].国家行政学院学报,2014(3):11-17.
[49]杨光斌.关于国家治理能力的一般理论———探索世界政治(比较政治)研究的新范式[J].教学与研究,2017,51(1):5-22.
[50]伍斌编著.政府绩效管理:理论与实践的双重变奏[M].北京:北京大学出版社,2017:267.
[51]包国宪,道格拉斯·摩根.政府绩效管理学[M].北京:高等教育出版社,2015:20.
[52]Hyndman,N.,&Liguori,M.Public Sector Reforms:Changing Contours on an NPM Landscape[J].Financial Accountability&Management,2016,32(1):5-32.
(1)奥斯本认为,公共治理最初只是公共行政或新公共管理的一个要素。
(2)英文为agencification,英国在下一步行动方案改革中成立了大量独立、半独立的机构,这些机构虽然主要由政府财政资助,但是具有相对的自治权。
(3)为了与关系绩效(relational performance)相区别,下文统一翻译为情境绩效。
(4)实际上,在20世纪60年代末明尼布鲁克会议之后诞生的新公共行政已经对政治-行政二分提出了批评。
(5)详见http://www.heritage.org/index/ranking。
(6)详见http://www.hzpolice.gov.cn/GOVHtml/201511/16/577e5378-6ac6-4851-b24b-c58a7306af79.html。