转型期我国政府回应能力提升研究
摘要
改革开放以来,当代中国一直在经历着由传统型社会向现代型社会的急剧转型。面对转型社会中公众多样化的需求和提出的大量问题,政府必须给予及时有效的回应。但是,当前我国政府回应社会公众的能力十分有限。如何提高政府的回应能力、建设一个有较高回应能力的政府已成为转型期我国政府建设中一个亟待解决的问题。
本文首先对政府回应进行了系统地理论分析。作为公共管理实践过程的重要内容和系统的政府管理理论的逻辑延伸,政府回应是随着西方政府管理理论的变迁和政府职能的不断变革与创新而逐步得到重视与发展的。从二战后至今,政府回应模式经历了由以官僚制为知识背景的行政管制型回应,到以新公共管理理论为知识背景的市场服务型回应,再到以治理理论为知识背景的民主治理型回应的嬗变。每种政府回应模式都与其作为知识基础和理念指导的政府管理理论相适应,表现出相应的特征。
本文对转型期我国政府在回应能力建设方面进行的实践探索进行了总结,并指出,一些新制度的推出和政府了解公众意愿渠道的拓宽使我国政府的回应能力在一定程度上有所提高。但从整体上看,迟缓、失衡、低效的回应仍然大量存在,低水平的回应破坏了党和政府的良好形象,加剧了社会矛盾冲突,严重影响了社会的和谐稳定和可持续发展。所以,现阶段,我国政府的回应能力亟待提升。本文分析指出,以民为本的行政理念的缺失、民意表达渠道不畅通、政府层级体系不科学、政府决策制度不完善、公务员素质普遍偏低、公众的权利意识不强是现阶段提升我国政府回应能力的主要制约因素。
借鉴发达国家在其政府回应能力建设中取得的有益经验,本文对转型期我国政府回应能力提升这一问题提出了对策:第一,树立以民为本的行政理念,这是政府回应能力提升的前提条件;第二,加强民意表达渠道建设,这是政府回应能力提升的重要基点;第三,变革政府组织架构,为政府回应能力提升提供组织保证;第四,完善政府决策制度,为政府回应能力提升提供制度保障;第五,提高公务员素质,为政府回应能力提升提供人员支撑;第六,增强公众权利意识,为政府回应能力提升提供外力配合。
Since reform and opening-up, China has been experiencing a rapid social transformation from a traditional society to a modern type. Facing the diversified demands and a great deal of questions raised by public in transitional period, the government must give timely and effective response. However, the government response capability at present is very limited. How to promote government response capability and build a government which responds public’s demands effectively has become a serious problem in the process of government’s construction during China’s transition.
Firstly, paper analyzes the government response theory systemically. As an important part of public management practice and a logical extension of government management theory, government response gradually attracts people’s attention with the constant changes of western government management theory and the innovation of government’s functions. From the end of World War II to now, there are three types of government response model, namely, administrative regulation type which bases on bureaucracy theory, marketable service type which bases on new public management theory, and democratic governance type which bases on governance theory. According to different government management theory, each model shows different characteristics correspondingly.
Paper summarizes the practical exploration on government response capability in transitional period, and indicates that some new institutions’execution and channels to catch public’s demands broadened promoted government response capability to a certain extent. But as a whole, slow, unbalanced, inefficient responses still exist widely. Poor responses not only undermine the party and government's good image, but also exacerbate social conflicts. The harmony and the stability of the society are seriously affected. The society couldn’t develop continually. Therefore, at this stage, the government response capability needs to be promoted imminently. Paper points out that the lack of people-oriented administrative concept, the block of public expression channels, unscientific governmental hierarchy, flawed institutions of government decision-making, low quality of public servants, public’s week awareness to vindicate their rights consist of main constraints on promoting government response capability in China.
Using for reference developed countries’useful experiences in the construction of government response capability, paper puts forward countermeasures for how to promote government response capability in transitional period: firstly, establish a people-oriented administrative concept, which is the precondition to promote government response capability; secondly, strengthen the construction of public expression channels, which is the key point to enhance the government response capability; thirdly, reform the governmental hierarchy to provide an organizational guarantee for the promotion of government response capability; fourthly, perfect the institutions of government decision-making to provide institutional safeguard for the promotion of government response capability; fifthly, improve the quality of public servants to provide personnel support for the promotion of government response capability; sixthly, strengthen the public's awareness to vindicate their rights to provide external support for the promotion of government response capability.
本文首先对政府回应进行了系统地理论分析。作为公共管理实践过程的重要内容和系统的政府管理理论的逻辑延伸,政府回应是随着西方政府管理理论的变迁和政府职能的不断变革与创新而逐步得到重视与发展的。从二战后至今,政府回应模式经历了由以官僚制为知识背景的行政管制型回应,到以新公共管理理论为知识背景的市场服务型回应,再到以治理理论为知识背景的民主治理型回应的嬗变。每种政府回应模式都与其作为知识基础和理念指导的政府管理理论相适应,表现出相应的特征。
本文对转型期我国政府在回应能力建设方面进行的实践探索进行了总结,并指出,一些新制度的推出和政府了解公众意愿渠道的拓宽使我国政府的回应能力在一定程度上有所提高。但从整体上看,迟缓、失衡、低效的回应仍然大量存在,低水平的回应破坏了党和政府的良好形象,加剧了社会矛盾冲突,严重影响了社会的和谐稳定和可持续发展。所以,现阶段,我国政府的回应能力亟待提升。本文分析指出,以民为本的行政理念的缺失、民意表达渠道不畅通、政府层级体系不科学、政府决策制度不完善、公务员素质普遍偏低、公众的权利意识不强是现阶段提升我国政府回应能力的主要制约因素。
借鉴发达国家在其政府回应能力建设中取得的有益经验,本文对转型期我国政府回应能力提升这一问题提出了对策:第一,树立以民为本的行政理念,这是政府回应能力提升的前提条件;第二,加强民意表达渠道建设,这是政府回应能力提升的重要基点;第三,变革政府组织架构,为政府回应能力提升提供组织保证;第四,完善政府决策制度,为政府回应能力提升提供制度保障;第五,提高公务员素质,为政府回应能力提升提供人员支撑;第六,增强公众权利意识,为政府回应能力提升提供外力配合。
Since reform and opening-up, China has been experiencing a rapid social transformation from a traditional society to a modern type. Facing the diversified demands and a great deal of questions raised by public in transitional period, the government must give timely and effective response. However, the government response capability at present is very limited. How to promote government response capability and build a government which responds public’s demands effectively has become a serious problem in the process of government’s construction during China’s transition.
Firstly, paper analyzes the government response theory systemically. As an important part of public management practice and a logical extension of government management theory, government response gradually attracts people’s attention with the constant changes of western government management theory and the innovation of government’s functions. From the end of World War II to now, there are three types of government response model, namely, administrative regulation type which bases on bureaucracy theory, marketable service type which bases on new public management theory, and democratic governance type which bases on governance theory. According to different government management theory, each model shows different characteristics correspondingly.
Paper summarizes the practical exploration on government response capability in transitional period, and indicates that some new institutions’execution and channels to catch public’s demands broadened promoted government response capability to a certain extent. But as a whole, slow, unbalanced, inefficient responses still exist widely. Poor responses not only undermine the party and government's good image, but also exacerbate social conflicts. The harmony and the stability of the society are seriously affected. The society couldn’t develop continually. Therefore, at this stage, the government response capability needs to be promoted imminently. Paper points out that the lack of people-oriented administrative concept, the block of public expression channels, unscientific governmental hierarchy, flawed institutions of government decision-making, low quality of public servants, public’s week awareness to vindicate their rights consist of main constraints on promoting government response capability in China.
Using for reference developed countries’useful experiences in the construction of government response capability, paper puts forward countermeasures for how to promote government response capability in transitional period: firstly, establish a people-oriented administrative concept, which is the precondition to promote government response capability; secondly, strengthen the construction of public expression channels, which is the key point to enhance the government response capability; thirdly, reform the governmental hierarchy to provide an organizational guarantee for the promotion of government response capability; fourthly, perfect the institutions of government decision-making to provide institutional safeguard for the promotion of government response capability; fifthly, improve the quality of public servants to provide personnel support for the promotion of government response capability; sixthly, strengthen the public's awareness to vindicate their rights to provide external support for the promotion of government response capability.
引文
[1] 郑杭生.中国特色社会学理论的探索[M].北京:中国人民大学出版社,2005,202
[2] 国家统计局.中国统计年鉴(2005)[M].北京:统计出版社,2005,168
[3] 何祖坤.关注政府回应[J].中国行政管理,2000,7:7
[4] 张成福.责任政府论[J].中国人民大学学报,2000,2:76
[5] [美]罗纳德·克林格勒,约翰·纳尔班迪.孙柏瑛等译.公共部门人力资源管理:系统与战略[M].北京:中国人民大学出版社,2001,127
[6] [美]格罗弗·斯塔林.陈宪等译.公共部门管理[M].上海:上海译文出版社,2003,132
[7] 王枫云.提升我国县级政府回应能力的途径研究[J].广西社会科学,2004,4:23
[8] 王枫云.提升我国县级政府回应能力的途径研究[J].广西社会科学,2004,4:23
[9] 汪大海.顾客社会与无缝隙政府[J].中国行政管理,2002,3:38
[10] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,40
[11] 胡冶岩.论行政领导的公共服务理念及其变革[J].党政干部学刊,2004,7:5
[12] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:3
[13] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:2
[14] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:3
[15] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:2
[16] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,48
[17] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:2
[18] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:57
[19] [美]格雷弗·斯塔林.陈宪等译.公共部门管理[M].上海:上海译文出版社,2001,132
[20] Rourke . Francis E Responsiveness and Neutral Competence in American Bureaucracy[J].Public Administration Review,1992,6:539
[21] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:57
[22] David Osborne,Ted Gaebler.Reinventing Government: How the Entrepreneurial Spirit Is Transforming the Public Sector[M].Mass: Addison-Wesley,1992,203
[23] [美]文森特·奥斯特罗姆.毛寿龙译.美国公共行政思想危机[M].上海:上海三联书店,1999,6
[24] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:58
[25] [澳]欧文·休斯.彭和平等译.公共管理导论[M].北京:中国人民大学出版社,2001,111
[26] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:59
[27] 俞可平.权力政治和公益政治[M].北京:社会科学文献出版社,2003,132
[28] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:59
[29] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,88
[30] 王科.带着嘴巴议政 咸阳市民旁听政府会议可发言[N].人民日报,2005-8-11
[31] 李蓉蓉.信访与地方政府治理中的问题[J].中国行政管理,2006,1:53
[32] 沈亚平,王骚.社会转型与行政发展[M].天津:南开大学出版社,2005,7
[33] 郑文静.论政府回应的公众环境[J].理论探索,2001,8:5
[34] 董亮.听证会规规矩矩走过场 05 年郑州人多掏 821 元[N].河南日报,2005-12-22
[35] 高林友.对青海省群体性事件问题的反思[J].攀登(双月刊),2005,5:116
[36] 王凤.行政组织中的行政理念分析[J].理论与改革,2003,2:32
[37] 张康之.论政府的非管理化——关于“新公共管理”的趋势[J].教学与研究,2000,7:31
[38] 徐增辉.论我国以人为本的服务型政府的构建[J].成都行政学院学报,2005,5:4
[39] 王巍.公众回应性:服务行政的核心特征[J].行政论坛,2004,9:33
[40] 张玲玲,张如成.我国电视新闻评论节目现状及制约性因素分析[J].新闻界,2006,4:53
[41] 黄岩,吴克昌.论公众参与和政府回应机制的重构[J].甘肃社会科学,2005,1:205
[42] 张成福.电子化政府:发展及其前景[J].中国人民大学学报,2000,3:5
[43] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,178
[44] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,179
[45] [英]诺思.陈郁等译.经济史中的结构与变迁[M].上海:上海人民出版社,1994,225
[46] 顾杰.论影响我国政府效率的深层因素[J].广东行政学院学报,2000,4:29
[47] 刘玉兵.价格听证制度实施中的经验、问题及完善思路[J].中国物价,2006,1:34
[48] 沈亚平,王骚.社会转型与行政发展[M].天津:南开大学出版社,2005,191
[49] 侯卫真.日本信息公开制度及其实施[J].中国档案,2004,2:16
[50] 余晓泓.日本环境管理中的公众参与机制[J].现代日本经济,2006,6:13
[51] 吴刚.韩国创建服务型政府的经验借鉴[J].山东经济战略研究,2005,1:46
[52] 韩宏博.以民为本与建立服务型政府[J].理论界,2006,3:38
[53] 韩宏博.以民为本与建立服务型政府[J].理论界,2006,3:38
[54] 徐增辉.论我国以人为本的服务型政府的构建[J].成都行政学院学报,2005,10:4
[55] 何增科.公民社会与第三部门[M].北京:社会科学文献出版社,2000:217
[56] 沈亚平,王骚.社会转型与行政发展[M].天津:南开大学出版社,2005:121
[57] 顾建光.现代公共管理学[M].上海:上海人民出版社,2004,263
[58] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,213
[59] 傅大友,芮国强.地方政府制度创新的动因分析[J].江海学刊,2003,4:93
[60] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,223-228
[61] 沈亚平、王骚.社会转型与行政发展[M].天津:南开大学出版社,2005,192
[62] 孟莉.论增强公民的权利意识[J].河南机电高等专科学校学报,2006,1:89
[63] 韩世强,陈秀君.权利观念:法制教育的路径选择[J].中国职业技术教育,2005,26:45
[2] 国家统计局.中国统计年鉴(2005)[M].北京:统计出版社,2005,168
[3] 何祖坤.关注政府回应[J].中国行政管理,2000,7:7
[4] 张成福.责任政府论[J].中国人民大学学报,2000,2:76
[5] [美]罗纳德·克林格勒,约翰·纳尔班迪.孙柏瑛等译.公共部门人力资源管理:系统与战略[M].北京:中国人民大学出版社,2001,127
[6] [美]格罗弗·斯塔林.陈宪等译.公共部门管理[M].上海:上海译文出版社,2003,132
[7] 王枫云.提升我国县级政府回应能力的途径研究[J].广西社会科学,2004,4:23
[8] 王枫云.提升我国县级政府回应能力的途径研究[J].广西社会科学,2004,4:23
[9] 汪大海.顾客社会与无缝隙政府[J].中国行政管理,2002,3:38
[10] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,40
[11] 胡冶岩.论行政领导的公共服务理念及其变革[J].党政干部学刊,2004,7:5
[12] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:3
[13] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:2
[14] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:3
[15] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:2
[16] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,48
[17] 陈水秘.政府回应的理论分析和启迪[J].地方政府管理,2001,11:2
[18] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:57
[19] [美]格雷弗·斯塔林.陈宪等译.公共部门管理[M].上海:上海译文出版社,2001,132
[20] Rourke . Francis E Responsiveness and Neutral Competence in American Bureaucracy[J].Public Administration Review,1992,6:539
[21] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:57
[22] David Osborne,Ted Gaebler.Reinventing Government: How the Entrepreneurial Spirit Is Transforming the Public Sector[M].Mass: Addison-Wesley,1992,203
[23] [美]文森特·奥斯特罗姆.毛寿龙译.美国公共行政思想危机[M].上海:上海三联书店,1999,6
[24] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:58
[25] [澳]欧文·休斯.彭和平等译.公共管理导论[M].北京:中国人民大学出版社,2001,111
[26] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:59
[27] 俞可平.权力政治和公益政治[M].北京:社会科学文献出版社,2003,132
[28] 王巍.论“政府回应”的内涵和主导模式转型[J].探索,2005,1:59
[29] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,88
[30] 王科.带着嘴巴议政 咸阳市民旁听政府会议可发言[N].人民日报,2005-8-11
[31] 李蓉蓉.信访与地方政府治理中的问题[J].中国行政管理,2006,1:53
[32] 沈亚平,王骚.社会转型与行政发展[M].天津:南开大学出版社,2005,7
[33] 郑文静.论政府回应的公众环境[J].理论探索,2001,8:5
[34] 董亮.听证会规规矩矩走过场 05 年郑州人多掏 821 元[N].河南日报,2005-12-22
[35] 高林友.对青海省群体性事件问题的反思[J].攀登(双月刊),2005,5:116
[36] 王凤.行政组织中的行政理念分析[J].理论与改革,2003,2:32
[37] 张康之.论政府的非管理化——关于“新公共管理”的趋势[J].教学与研究,2000,7:31
[38] 徐增辉.论我国以人为本的服务型政府的构建[J].成都行政学院学报,2005,5:4
[39] 王巍.公众回应性:服务行政的核心特征[J].行政论坛,2004,9:33
[40] 张玲玲,张如成.我国电视新闻评论节目现状及制约性因素分析[J].新闻界,2006,4:53
[41] 黄岩,吴克昌.论公众参与和政府回应机制的重构[J].甘肃社会科学,2005,1:205
[42] 张成福.电子化政府:发展及其前景[J].中国人民大学学报,2000,3:5
[43] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,178
[44] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,179
[45] [英]诺思.陈郁等译.经济史中的结构与变迁[M].上海:上海人民出版社,1994,225
[46] 顾杰.论影响我国政府效率的深层因素[J].广东行政学院学报,2000,4:29
[47] 刘玉兵.价格听证制度实施中的经验、问题及完善思路[J].中国物价,2006,1:34
[48] 沈亚平,王骚.社会转型与行政发展[M].天津:南开大学出版社,2005,191
[49] 侯卫真.日本信息公开制度及其实施[J].中国档案,2004,2:16
[50] 余晓泓.日本环境管理中的公众参与机制[J].现代日本经济,2006,6:13
[51] 吴刚.韩国创建服务型政府的经验借鉴[J].山东经济战略研究,2005,1:46
[52] 韩宏博.以民为本与建立服务型政府[J].理论界,2006,3:38
[53] 韩宏博.以民为本与建立服务型政府[J].理论界,2006,3:38
[54] 徐增辉.论我国以人为本的服务型政府的构建[J].成都行政学院学报,2005,10:4
[55] 何增科.公民社会与第三部门[M].北京:社会科学文献出版社,2000:217
[56] 沈亚平,王骚.社会转型与行政发展[M].天津:南开大学出版社,2005:121
[57] 顾建光.现代公共管理学[M].上海:上海人民出版社,2004,263
[58] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,213
[59] 傅大友,芮国强.地方政府制度创新的动因分析[J].江海学刊,2003,4:93
[60] 李伟权.政府回应论[M].北京:中国社会科学出版社,2005,223-228
[61] 沈亚平、王骚.社会转型与行政发展[M].天津:南开大学出版社,2005,192
[62] 孟莉.论增强公民的权利意识[J].河南机电高等专科学校学报,2006,1:89
[63] 韩世强,陈秀君.权利观念:法制教育的路径选择[J].中国职业技术教育,2005,26:45