强行政弱外包:政企统合治理的机制及其影响

Strong Administration and Weak Outsourcing:Mechanism and Influence of Government-Enterprise Integration

作为政府治理的两种典型模式,行政发包制和外包制具有清晰的组织边界。但广泛存在于地方政府城市经营之中的政企统合治理模式却介于行政与市场两种组织边界之间,呈现出与行政发包制和市场外包制不同的治理机制和特征。"强行政弱外包"是政企统合治理模式的核心机制,具体表现为行政权分配的强行政性、经济激励的弱激励性以及治理手段的统合性。"强行政弱外包"赋予了地方政府更强的协调性和灵活性,有助于整合地方政府经济发展中的双重张力:地区经济控制权与市场化目标之间的张力,增长目标与增长能力之间的张力;但同时也激化了科层与市场两种制度逻辑之间的冲突,影响着政企统合治理的活力和可持续性。

The objective of this paper is to explain the mechanisim and influence of Government-Enterprise Integration. The government-enterprise integration lies between administrative organization and market, showing different mechanism and characteristic of governance from administrative subcontract and market outsourcing.Cases study of special economic zones is conducted in this paper, including "process tracking method", "structured interviews" and "unstructured interviews". "Strong administration and weak outsourcing" is the key mechanism of Government-Enterprise Integration. The mechanism is manifested in strong administration in the distribution of administrative power, weak incentive in economic incentives and integration of tools of governance. "Strong administration and weak outsourcing" gives more coordination and flexibility to the local government and helps it to integrate the double tension in the economic development of local government:(1)tension between the control of regional economic and market-oriented objective,(2)tension between growth objective and growth capacity. However, the mechanism intensifies the conflict between two institutional logics of bureaucracy and market, which affects the vitality and sustainability of government-enterprise integration. The key limitation of this study is lack of complete and dynamic case presentation. And the mechod of Multi-case comparative study is worthy of expectation. This paper argue that the administrative subcontract and market outsourcing can’t explain the mechanisim of government-enterprise integration completely which lies between administrative organization and market. Based on former research, this study analysises the mechanism of government-enterprise integration and difference from administrative subcontract and market outsourcing. This work contributes to broadening the research field of mixed governance mode of government and market.