“治理”概念的兴起及其在中国公共管理中的应用

The Rise of the Governance Concept and Its Application in China's Public Administration Studies

公共管理研究中的"治理"概念起源于欧美,近年来在中国的官方话语和学术讨论中得到越来越多的关注。本文对治理概念的缘起及其在中国的传播和本土化过程进行梳理和评论。文章首先对治理概念在西方兴起的背景和概念的内涵做了一个简要的回顾,特别强调其对官僚规模膨胀和效率低下的反弹,以及公共服务职能向社会自治机构和私人部门的转向。通过比较中西语境下围绕治理的讨论的异同点,指出二者都主张由政府的一元治理转变为政府与社会合作的多元治理,以及不同社会自治团体之间的良性互动;不同点在于中国在提出社会治理创新的同时,也在不断加强对官员的监督,执政党及其领导下的官僚队伍在社会经济发展中的作用被进一步强化。文章梳理了中国治理研究中常用的三种理论框架:压力型体制、项目制和运动式治理。分析表明,中央政府在面对地方政府时掌握着绝对的资源优势和灵活多变的控制手段,地方政府和社会组织的自主性仍有待提高。在这样的制度环境下,推动治理主体和治理机制的根本转变,需要对官僚内部组织原则和官僚集团在社会中的作用进行重新思考,建立一种新的、基于平等协商和自愿合作基础上的多元治理模式。

Originated from public administration studies in the West, the concept of governance interests in China＇s official discourse and academic literature. This article reviews the context studies flourished and examines the similarities and differences in how the concept has been has received growing in whic analyzed h governance and applied between the West and China. Similar to the Western discourse on governance, the Chinese discourse advocates for pluralist governance based on government-society cooperation and interactions between autonomous social organizations. However, attention to social governance in China is accompanied by efforts by the ruling party to enhance supervision of Party officials and the role of the bureaucracy in leading socioeconomic development. We survey three major conceptual frameworks in the Chinese governance literature： the pressure system, the project-based system, and campaign -style governance. The analysis shows that the central government is equipped with a variety of resources and methods in controlling the local governments, a feature that remains constant in China＇s bureaucratic system. A transition to modern governance therefore requires a fundamental rethinking of the bureaucracy＇s organizing principles, its role in society, and the path towards a pluralist governance model based on negotiation and voluntary cooperation.