治理取向还是管理取向?——中国公共政策绩效研究的进路与趋势

Managerial Orientation or Governance Orientation:The Route and The Prospect of Public Policy Performance Research in China

中国民主政治的深入发展以及复杂社会下公共政策风险增加,使得学界和实务界对公共政策绩效的关注日益提高。从公共政策绩效研究角度来说,对公共政策绩效研究整体进路的梳理与把握是公共政策绩效知识创新与知识增量的内在要求。文章运用批判理论的方法,对当前中国公共政策绩效研究的背景、前提、焦点等内容进行了梳理。研究发现:公共政策绩效研究有两种取向,即管理主义取向和治理取向。两种取向都是以结果导向,但两者所秉持的进路不同。管理取向的进路秉持工具主义导向,研究焦点侧重于"如何实现对政策结果的客观评价以及绩效结果如何使用";而治理取向的进路则试图超越工具主义导向,认为绩效实质上是社会建构,其研究焦点侧重于"绩效评价的合法性以及绩效生产过程"。就中国实践需要而言,两种取向的研究都有其重要的价值,需要在实践中整合两种取向的研究,而基于公共价值的政府绩效治理理论将为公共政策绩效研究提供有益的指导。

With further development of democratic politics and higher risk of public policy in China, public policy performance has been paid more attention by the theoretical and practical fields. From the perspective of public policy performance research, it is an in- trinsic requirement to hold the research as a whole for the knowledge of public policy performance innovation and growth. Criticism methodology is used in this paper to sort out the background, presupposition, procedures and opinions of public policy performance re- search in China. During the research we find that there are two kinds of orientation, that is managerial orientation and governance orien- tation. Though both are result-oriented, they have different routes. The route of the managerial orientation is tool-directed, and it focus on how to realize the objective evaluation of the results and bow to use the performance results, while the route of governance orientation tries to surpass the tool-directed view, it holds the view that performance is a social construction in essence and it focus on the validity of performance evaluation and the process of performance production. The both of route are helpful for the development of policy perfor- mance. And what we should do is to integrate the both route. Fortunately the public value based government performance governance will help for future the research.