杨冠琼 刘雯雯
四、国家治理体系与能力现代化建构的总体原则
当代公共问题的动态复杂性及其特征表明，在公共行政领域，人们面临的问题既不是韦伯所设想的标准化、确定性、专业化以及非人格化的问题，也不是新公共管理所设想的如何在政府与市场之间进行重新划分的问题，更不是治理理论所设想的只要具备一系列宏观模式变量就可以有效治理社会的问题，而是一系列新的问题。这些新问题意味着公共领域正在发生一场深刻的结构性变迁。
有效应对或化解具有复杂动态性的当代公共问题，必须转换和重构关于公共问题性质、特征以及化解这类问题的方式、途径的心智模式或思维理念。因为心智模式或思维理念就是Allison所指的观察、思考问题的“过滤镜”。“阿什比必要多样性定律”表明，只有被探究的问题的本体论意义上的性质与特征与用来探究该问题的心智模式或思维理念相一致，即两者之间的复杂性存在对等关系，这样的心智模式或思维理念才能够有效地理解和掌握其探究的问题的本体论意义上的特征，从而才能真正理解和正确地解决问题。[31]依据这一定律，有效应对或化解具有复杂动态性的当代公共问题，公共治理体系必须具有复杂适应性的性质[32]，即公共治理必须更具灵活性、广泛的参与性、强大的能动性、大胆的试验性或探索性以及强大的协同性、自组织性等。
事实上，正是基于这样的思维，人们已经普遍认识到，公共领域的结构性变迁正蕴育着一种新的公共行政范式。著名公共行政学家Meier认为，“ ‘能动的政府’不仅使有限政府的神圣光环暗然失色，而且使现代政府必须承担那些对于19世纪和20世纪初期的政府完全陌生的新职能”[33]，即解决具有复杂动态性的当代公共问题，成为当代政府新的核心职能。“过去一个世纪以来，公共行政的最重要变迁是公共组织间日益增强的相互依赖性，这种变迁改变了公共行政者的职能，他必须努力构建与其他组织或机构不可或缺的联系”。Goldsmith and Eggers认为，“网络化时代需要一种完全不同于过去100年来人们已经熟悉与习惯的公共管理”。[34]Stoker指出，公共领域出现了新现象，需要从较先前范式更为广泛的意义上界定行政的功能，并通过一系列动态治理网络实现其众多目的与目标。公共领域的结构性变迁，使任何一个公共管理者都必须同时进行政府间管理、不同组织与部门间管理以及不同领域问题间的管理。任何公共行政机构已经很难从其所处的复杂环境中区分出其边界，它必须学会在边界模糊的时代履行其管理或行政职能。协同各种边界与力量、资源、智慧已经成为社会现实特别是公共问题的性质与特征向人类颁布的一道自然命令。
为适应公共领域的结构性变迁，20世纪90年代以来，一套以区域主义、跨部门伙伴关系、公共服务网络、共识构建、公共参与、公共价值、公民导向或公民为核心、政府间与部门间协同以及跨界管理或协调等[35]为核心的国家治理话语体系，正在汇聚为一股强大浪潮，荡涤与重塑着发达国家公共行政或公共治理的理论与实践。
大量实践探索与理论研究显示，发达国家的政府正在努力求助于协同、合作与协调的理念及其一整套实现结构、机制与过程，重塑国家治理体系。他们已经清楚地意识到，在日益复杂的环境下，没有与其他社会组织或资源的协同努力，根本无法实现公共治理的各种目的与目标。各种探索、经验以及理论反思已经清楚地表明，如果希望能够有效应对21世纪日益凸显的各种巨大挑战，各国政府必须开发持续协同能力;未来属于那些能够有效协同各种社会资源的社会与政府。2008年举行的“澳大利亚政府2020高峰论坛”上，如何构建协同治理成为热点话题，协同治理被视为未来促进国家治理体系创新的“核心理念”。
不论人们怎样标识国家治理体系与能力现代化，构建具有复杂适应性性质和特征的国家治理体系，都必须坚持网络化结构原则、利益相关者或公民为中心原则、协商与共识达成原则、公共价值增殖效应最大化原则、社会自组织与协同能力激发原则、信任、互惠与合作能力促进原则等。篇幅所限，这些原则的具体内容、内在逻辑以及他们与复杂适应性的关系，将另文论述。
（作者:杨冠琼，北京师范大学政府管理学院教授，博导;刘雯雯，北京师范大学政府管理学院博士研究生）
（来源：中国行政管理）
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Public Problems and Governance System：
The Problems 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 Ashbys 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,Ashbys 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
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