公共問題與治理體系

四、國家治理體系與能力現代化建構的總體原則

當代公共問題的動態復雜性及其特征表明，在公共行政領域，人們面臨的問題既不是韋伯所設想的標准化、確定性、專業化以及非人格化的問題，也不是新公共管理所設想的如何在政府與市場之間進行重新劃分的問題，更不是治理理論所設想的隻要具備一系列宏觀模式變量就可以有效治理社會的問題，而是一系列新的問題。這些新問題意味著公共領域正在發生一場深刻的結構性變遷。

有效應對或化解具有復雜動態性的當代公共問題，必須轉換和重構關於公共問題性質、特征以及化解這類問題的方式、途徑的心智模式或思維理念。因為心智模式或思維理念就是Allison所指的觀察、思考問題的“過濾鏡”。“阿什比必要多樣性定律”表明，隻有被探究的問題的本體論意義上的性質與特征與用來探究該問題的心智模式或思維理念相一致，即兩者之間的復雜性存在對等關系，這樣的心智模式或思維理念才能夠有效地理解和掌握其探究的問題的本體論意義上的特征，從而才能真正理解和正確地解決問題。[31]依據這一定律，有效應對或化解具有復雜動態性的當代公共問題，公共治理體系必須具有復雜適應性的性質[32]，即公共治理必須更具靈活性、廣泛的參與性、強大的能動性、大膽的試驗性或探索性以及強大的協同性、自組織性等。

事實上，正是基於這樣的思維，人們已經普遍認識到，公共領域的結構性變遷正蘊育著一種新的公共行政范式。著名公共行政學家Meier認為，“ ‘能動的政府’不僅使有限政府的神聖光環暗然失色，而且使現代政府必須承擔那些對於19世紀和20世紀初期的政府完全陌生的新職能”[33]，即解決具有復雜動態性的當代公共問題，成為當代政府新的核心職能。“過去一個世紀以來，公共行政的最重要變遷是公共組織間日益增強的相互依賴性，這種變遷改變了公共行政者的職能，他必須努力構建與其他組織或機構不可或缺的聯系”。Goldsmith and Eggers認為，“網絡化時代需要一種完全不同於過去100年來人們已經熟悉與習慣的公共管理”。[34]Stoker指出，公共領域出現了新現象，需要從較先前范式更為廣泛的意義上界定行政的功能，並通過一系列動態治理網絡實現其眾多目的與目標。公共領域的結構性變遷，使任何一個公共管理者都必須同時進行政府間管理、不同組織與部門間管理以及不同領域問題間的管理。任何公共行政機構已經很難從其所處的復雜環境中區分出其邊界，它必須學會在邊界模糊的時代履行其管理或行政職能。協同各種邊界與力量、資源、智慧已經成為社會現實特別是公共問題的性質與特征向人類頒布的一道自然命令。

為適應公共領域的結構性變遷，20世紀90年代以來，一套以區域主義、跨部門伙伴關系、公共服務網絡、共識構建、公共參與、公共價值、公民導向或公民為核心、政府間與部門間協同以及跨界管理或協調等[35]為核心的國家治理話語體系，正在匯聚為一股強大浪潮，蕩滌與重塑著發達國家公共行政或公共治理的理論與實踐。

大量實踐探索與理論研究顯示，發達國家的政府正在努力求助於協同、合作與協調的理念及其一整套實現結構、機制與過程，重塑國家治理體系。他們已經清楚地意識到，在日益復雜的環境下，沒有與其他社會組織或資源的協同努力，根本無法實現公共治理的各種目的與目標。各種探索、經驗以及理論反思已經清楚地表明，如果希望能夠有效應對21世紀日益凸顯的各種巨大挑戰，各國政府必須開發持續協同能力;未來屬於那些能夠有效協同各種社會資源的社會與政府。2008年舉行的“澳大利亞政府2020高峰論壇”上，如何構建協同治理成為熱點話題，協同治理被視為未來促進國家治理體系創新的“核心理念”。

不論人們怎樣標識國家治理體系與能力現代化，構建具有復雜適應性性質和特征的國家治理體系，都必須堅持網絡化結構原則、利益相關者或公民為中心原則、協商與共識達成原則、公共價值增殖效應最大化原則、社會自組織與協同能力激發原則、信任、互惠與合作能力促進原則等。篇幅所限，這些原則的具體內容、內在邏輯以及他們與復雜適應性的關系，將另文論述。

（作者:楊冠瓊，北京師范大學政府管理學院教授，博導;劉雯雯，北京師范大學政府管理學院博士研究生）

（來源：中國行政管理）

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Public Problems and Governance System：

The Problems Foundations for Modernization of the National Governance System and Capacity

Yang GuanqiongLiu Wenwen

[Abstract]The modernization of state governance system and its capacity is essentially a recursive loop of associative matching process of the governance system to the complexity of public problems. As a tool to deal with the public problems, the more fitter of the governance system to the complexity of public problems, the more effective it is in coping with its problems. Public problems any society confronts are social and cultural embedded, time-space bound as well as knowledge-rationality-technology bound, and therefore are of the nature of dynamic complexity. The nature is associated with the characteristics of multiple embeddedness, dynamic evolution, macro-emergence, subjective construction, self-organization and uncertainty. The governance system coping with the public problems needs to be at least of the same natures and characteristics inherited in the problems according to Ashbys Law of requisite variety. The governance system should be thus framed to have the same complexity inherent in the problems to promote the modernization of governance system and its capacity. To do this, the principles such as network structures, citizen-centered, negotiation or consensus attaining, public value maximizing, and social self-organizing, trust and reciprocity promoting, need to be maintained.

[Key words]modernization of state governance system,public problems,complex adaptability,Ashbys Law of requisite variety

[Authors]Yang Guanqiong is Professor at School of Government, Beijing Normal University;Liu Wenwen is Doctoral Candidate at School of Government, Beijing Normal University. Beijing 100875