治理的“在场化”:变化社会中的政府治理能力建设研究

以科层制为依托的行政一元化治理模式存在组织形态与思维方式上的局限性,而其伴生的信息劣势和权能短板也导致了治理空白、反应迟缓和治理偏差,这使其在面对转型社会的治理难题时陷入困境。在"一线"构建政府治理场域为变化社会提供了"在场化"的治理方案:科层内部的干部动员机制和科层动员机制实现了信息资源与权能资源在治理"一线"与决策层之间的有效对接与传输,进而使得一线行政主体和上级行政主体分别实现了实质性与虚体性的"在场";而政府推进的社会动员则实现了社会、市场领域的多元行动者由"自在"向"自为"的角色转化,并获得了"在场"的治理主体地位。由此,在治理"一线"形成的以广义政府为权威核心,多元治理主体有机协同的治理场域格局,不仅在工具理性层面矫治了一元治理和科层治理的弊端,弥补了治理目标与治理手段之间的裂隙,也产生了国家与社会相互支持的嵌入式治理的溢出效应,从而以"增能"与"减阻"两个向度强化了变化社会中的政府治理能力。

"Presence" of Governance:Research on the Construction of Government Governance Capacity in a Changing Society

This paper holds that the centralized administrative governance mode based on bureaucracy has limitations in organizational form and thinking patterns,and the accompanying information shortage and power shortage also lead to governance blank,slow response and governance deviation,consigning the centralized mode to a dilemma when facing the governance problems of a transitional society.However,it provides a"presence"governance scheme for a changing society by constructing a governance field in the"front line":the cadre mobilization mechanism and the branch mobilization mechanism within the branch bring about the effective connection and transmission of information resources and power resources between the"front line"governors and the decision-making body,thus enabling the front-line administrative body and the superior administrative body to achieve substantive and virtual"presence"respectively.On the other hand,the social mobilization promoted by the government has effectuated the transformation of multiple stakeholders in the social and market fields from"being at ease"to"being for oneself"and thereby acquiring the governance subject status of"being present".Therefore,the governance field pattern formed in the front line"of governance,with the broad government as the authoritative core and multiple governance subjects working organically,corrects the drawbacks of unitary governance and hierarchical governance from the perspective of instrumental rationality,filling the gap between governance objectives and governance means.Meanwhile,this pattern also produces the spillover effects of embedded governance where the state and society demonstrate reciprocal support,thus strengthening the government’s governance capability in a changing society by virtue of"energy enhancement and resistance reduction".