以公共价值为基础的政府绩效治理——源起、架构与研究问题

政府绩效管理兴起二十多年来,已由西方国家应对财政和信任危机、提高行政效率的工具拓展为各国政府改革和创新的重要内容,新公共管理的实践价值和理论优势在其中都得到了充分体现。但其理论缺陷和实践中的困惑,特别是在公共价值方面的冲突使学术界的探索从未停止过。本文通过对中国、美国、日本等国的实践案例考察,从制度变迁和公共行政学术史两个层面的质性研究,提出了以公共价值为基础的政府绩效治理理论体系框架。文章首先从"公共性"、"合作生产"和"可持续"三个方面对新公共管理背景下的政府绩效管理进行了反思,认为公共价值对政府绩效合法性具有本质的规定性。其次,初步论证了以公共价值为基础的政府绩效治理的两个基本命题——政府绩效是一种社会建构、产出即绩效;认为只有来源于社会的政府绩效才能获得合法性基础,也只有根植于社会的政府绩效才能产生其可持续提升的需要,这是政府绩效管理的根本动力;而在政府绩效价值建构基础上的科学管理,才能保证政府产出与社会需求的高度一致,充分体现科学管理的价值。再次,从这两个基本命题出发,以价值管理和管理科学理论为基础,构建起了以公共价值为基础的政府绩效治理模型,并对模型中政府绩效的价值建构、组织管理和协同领导系统等主要内容进行了阐述。最后,从模型如何"落地"、政府绩效管理的价值分析和研究拓展等方面提出了未来的研究方向。

Public Value-Based Government Performance Governance:Origin,Structure and Research Questions

With rising up for more than twenty years,government performance management has expanded from an instrument used to deal with financial and trust crisis by western countries,improving administrative efficiency to an important component of government reform and innovation.The practical value and theoretical advantages of new public management was fully reflected in it.However,the theoretical defects and practical puzzles of government performance management,especially the conflict of public value,have never ceased from the exploration of academia.Based on the case investigation in China,the United States,Japan,South Korea and Vietnam,this paper proposes a public value-based government performance governance theoretical framework through qualitative research on the institutional transition of government performance management and the history of public administration.Firstly,the paper rethinks the government performance management under NPM paradigm from the aspects of "publicness","Co-production" and "sustainability",and proposes that public value is essentially vital to the legitimacy of government performance.Secondly,the paper preliminarily proves two fundamental propositions of public value-based government performance governance : One is that government performance is a social construction,and the other is that output equals performance.This paper believes that government performance could get the legitimacy foundation only if it comes from the society and these kinds of performance could generate the necessity of its sustainable improvement.The social construction of government performance is the underlying motivation of government performance management.While the scientific management based on the value construction of government performance could guarantee the highly coherence between government outputs and social requirements,so as to reflect the value of scientific management.Thirdly,following the two propositions,this paper builds a public value-based government performance governance model based on value management and management science theory,and briefly illustrates the value construction,organizational management and synergetic leadership system of government performance management within the model.At last,six key research questions in the future were put forward for academic discussion from the aspects of how to realize the model,the value analysis and research development of government performance management.