非政府组织在服务型政府建设中的作用研究

发布时间：2018-08-21 14:33

【摘要】：在二十世纪八九十年代,随着人类社会逐渐从工业社会向后工业社会迈进,社会的复杂性和不确定性增加,这导致传统以效率价值为中心价值和具有控制导向的管理型政府模式发生了危机。为克服管理型社会治理模式的危机,各国纷纷进行行政改革来提高政府的社会治理能力和治理效率。在改革中,各国纷纷缩小政府规模,对政府官僚制进行改革,由此,一种不同于政府却又确实具有某种政府实体地位的组织产生了,这就是以代理机构和其他实体为代表的非政府组织。非政府组织不同于历史上存在的自愿组织,它具有自身的特点。与其他组织不同的是,非政府组织所追求的不是社会治理的辅助角色,而是要求与国家合作乃至独立承担某些社会治理的职能。所以,非政府组织的出现预示着管理型社会治理模式的解体和服务型社会治理模式的来临。首先,非政府组织能够促进公共性的扩散。在管理型社会治理模式中,政府垄断着公共服务和公共物品的供给责任。在工业社会低度复杂性和低度不确定性的情况下,政府还能胜任提供公共服务的职责。但随着人类社会从工业社会向后工业社会的转型,高度复杂和高度不确定的社会现实导致管理型政府面临失灵的风险。管理型政府的失灵意味着迫切需要引入非政府组织等新的社会治理主体。原来只有政府是实现公共性的唯一主体,但由于非政府组织承担了社会治理的部分职能,非政府组织也与政府一样成为社会治理的重要主体。由此,非政府组织促进了公共性的扩散。在另一方面,非政府组织实际上也促进了实质公共性的实现。管理型政府之所以无法应对高度复杂的社会现实,主要原因在于管理型政府所具有的公共性只是形式公共性,这种形式公共性在本质上并不能体现社会的公共利益,也无法满足高度不确定社会的需求。非政府组织参与公共服务提供和进行社会治理,一方面使公共性从政府扩散到了社会,打破了政府对公共性的垄断,在另一方面,非政府组织成为社会治理主体也促进了公共性的实现,使公共性从形式公共性转变为实质公共性。因此,从这一意义上看,由于非政府组织的出现,政府从管理型政府的形式公共性转变为服务型政府的实质公共性,所以,非政府组织的产生,实际上促进了服务型政府的产生。其次,非政府组织在促进公共性扩散的同时,也促进了领域融合。在管理行政的制度设计中,官僚制是作为一种中介联接着国家与社会,但是,官僚制自身的问题与缺陷导致政府官僚制并不能起到有效表达社会需求的作用。官僚制并没有能够将国家与社会联接起来,反而与国家一道对社会进行垄断统治,由此才导致了管理行政的危机。非政府组织能够成为领域融合的组织基础。非政府组织之所以能够成为领域融合的组织基础,在于非政府组织的独特特征。非政府组织既具有公共领域的特征,也具有私人领域的特征,同时也具有日常生活领域的特征。正因为非政府组织在特性上与公共领域和私人领域的相似性,由此导致非政府组织能够成为领域融合的组织基础。同时,非政府组织能够进一步的促进公共领域、私人领域和日常生活领域的融合。第三,非政府组织促进了合作治理的产生。无论是参与治理理论或者是其它理论设计,在本质上,政府与其它参与者之间的关系都是一种协作关系,这种协作关系的特点是政府始终处于一种主导地位。也就是说,协作关系是属于一种控制导向的关系类型。这种控制导向的协作模式无法适应复杂社会现实对社会治理所提出的要求而面临失灵。非政府组织的兴起为合作治理创造了条件,非政府组织由于其不同于政府的治理优势而获得了社会治理的主体地位。非政府组织与政府在社会治理功能上具有互补性,因而,为应对风险社会的挑战,政府与非政府组织需要建立一种合作治理的关系。由于服务型政府在本质上是一种合作治理社会治理模式,所以,非政府组织的兴起实际上促进了服务型政府的产生。第四,非政府组织还能够促进伦理精神的生成。非政府组织促进伦理精神的生成表现在,非政府组织既促进了公平正义的实现,也促进了公共政策的合理性,促使政府从管理走向服务,同时也促进了行政人员伦理精神的生成。非政府组织通过促进伦理精神的生成,它实际上催生了一种不同于管理型政府模式的服务型政府模式。概言之,非政府组织在服务型政府建设中的作用主要表现在非政府组织促进了服务型政府产生,它从多个方面对服务型政府的建立具有促进作用。当然,在另一方面,服务型政府对非政府组织也具有引导作用。
[Abstract]:In the eighties and nineties of the twentieth century, with the gradual progress of human society from an industrial society to a post-industrial society, the complexity and uncertainty of society increased, which led to the crisis of the traditional management-oriented government model with the value of efficiency as the center and control as the guide. In the process of administrative reform, many countries have reduced the size of government and reformed the government bureaucracy. As a result, an organization which is different from the government but has a certain status as a government entity has emerged. This is the non-governmental group represented by agencies and other entities. Unlike other organizations, NGOs seek not to play a supporting role in social governance, but to cooperate with the state and even assume certain functions of social governance independently. Therefore, the emergence of NGOs indicates a management-oriented society. First of all, non-governmental organizations can promote the spread of publicity. In the Management-oriented Social Governance model, the government monopolizes the responsibility of the supply of public services and public goods. However, with the transformation of human society from industrial society to post-industrial society, the highly complex and highly uncertain social reality leads to the risk of failure of management-oriented government. The only common subject, however, because NGOs assume some of the functions of social governance, NGOs have become as important as the government. Thus, NGOs promote the spread of publicity. On the other hand, NGOs actually promote the realization of substantive publicity. To cope with the highly complex social reality, the main reason is that the public nature of the management-oriented government is only the form of public nature, which in essence can not reflect the public interests of society, and can not meet the needs of highly uncertain society. On the one hand, it makes the publicity diffuse from the government to the society, breaking the monopoly of the government on the publicity, on the other hand, the non-governmental organizations become the main body of social governance also promotes the realization of publicity, and makes the publicity change from formal publicity to substantive publicity. Therefore, the emergence of non-governmental organizations actually promotes the emergence of service-oriented government. Secondly, non-governmental organizations promote the diffusion of publicity, but also promote the integration of fields. The government bureaucracy can not effectively express the social needs because of its own problems and shortcomings. Bureaucracy does not connect the state with society, but monopolizes the society with the state, which leads to the crisis of management administration. NGOs can become the non-governmental organizations. The organizational basis of domain integration. The reason why non-governmental organizations can become the organizational basis of domain integration lies in the unique characteristics of non-governmental organizations. Similarities between the domain and the private sphere result in NGOs becoming the organizational basis for domain integration. At the same time, NGOs can further promote the integration of the public sphere, the private sphere and the daily life sphere. On design, in essence, the relationship between government and other participants is a kind of cooperative relationship, which is characterized by the government always in a dominant position. In other words, cooperative relationship is a kind of control-oriented relationship type. This control-oriented cooperative model can not adapt to the complex social reality of social governance. The rise of non-governmental organizations (NGOs) has created conditions for cooperative governance, and NGOs have gained the dominant position of social governance because of their different governance advantages from the government. NGOs and the government are complementary in their social governance functions. Therefore, in order to meet the challenges of a risky society, the government and the government have to cooperate with each other. Non-governmental organizations need to establish a cooperative governance relationship. As service-oriented government is essentially a cooperative governance model, the rise of non-governmental organizations actually promotes the emergence of service-oriented government. Fourthly, non-governmental organizations can also promote the generation of ethical spirit. Non-governmental organizations promote ethical spirit. NGOs not only promote the realization of fairness and justice, but also promote the rationality of public policy, promote the government from management to service, and also promote the generation of ethical spirit of administrative personnel. In a word, the role of non-governmental organizations in the construction of service-oriented government is mainly manifested in that non-governmental organizations promote the emergence of service-oriented government, which promotes the establishment of service-oriented government in many ways. Of course, on the other hand, service-oriented government also has a guiding role for non-governmental organizations.
【学位授予单位】：南京大学
【学位级别】：博士
【学位授予年份】：2014
【分类号】：C912.2;D630
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本文编号：2196046