政府与社会资本合作的善治之路——构建PPP的有效性与合法性

Good Governance of the Cooperation between Government and Social Capital:the Validity and Legality of the Construction of PPP

既往有关PPP的论述主要集中在管理、融资、采购、效益和技术层面,而治理方式的变革需要政府与社会资本整合权力关系、适应有效性与合法性的需求,这也是政府与社会资本合作通往善治的必由之路。本文从当前PPP实践普遍存在的问题入手,理论联系实践,从伙伴间平行关系与供需方垂直关系对权力进行整合,对PPP进行有效性与合法性的构建,使政府主导下的内部平行合作与外部的多中心层级制权威结构在PPP模式下相互交织,通过制度构建以保障PPP的内部合法和外部有效,实现合法性与有效性的统一。

The discourse on Public Private Partnerships （ PPP ） is focused mostly on management, finance, purchasing, profit, and technology. The shift from government to governance which will lead PPP to good governance calls for power relation integration, and meets the needs of effectiveness and legitimacy. This paper is divided into four parts： （ 1 ） integration of power and construction of PPP effectiveness and legitimacy are essential to achieve good governance; （ 2 ） the integrations of horizontal power of internal operations and vertical power of external operations are interwoven under the Authoritative PPP, while the effectiveness of hierarchicalgovernment externally and the legitimacy of partnership-governance internally unite effectiveness and legitimacy; （ 3 ） tensions between the self-interest orientation brought by social forces to participate in the PPP and the public interest may encroach on the effectiveness and legitimacy of PPP. The frame legitimate PPP of David Beetham ensures the effectiveness of hierarchical-government externally and the legitimacy of Partnership-governance internally of PPP. The scope however is restricted in terms of political sensitivity; and （ 4 ） the government should vigorously promote the PPP.