治理的兴起与国家角色的转型
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摘要
治理的兴起对国家权威构成了挑战,“国家中心主义”的分析框架已不复适用。但是治理的发展也为国家的转型提供了出路,国家在治理结构中仍然扮演者重要的角色,并且国家在完善治理结构上也将发挥关键的作用。对于发展中国家而言,国家角色的转型更重要地体现在国家建构上。
从20世纪80年代起,“治理”日益成为国际社会科学领域的一个时髦词汇,也成为社会科学的一种新的分析框架。治理的兴起对传统的国家权威提出了挑战。首先,治理挑战了国家的“统治”角色与国家权力的运行向度。其次,治理反思了市场失灵与国家失败的两种场景,超越了自由主义与干预主义之争。治理的兴起不再是“国家中心主义”的,它对国家的讨论也不再局限于国家与市场的关系,而总是围绕着国家与社会的关系等问题展开。
但是,治理与国家之间不仅仅存在异质性,也具有同质性,治理不仅对国家主权造成冲击,同样也可以拓展和加强国家主权,反过来,国家在治理中也不完全是被动适应的一方,同时也是影响治理机制形成和运作的重要力量。因而,与其说治理的兴起体现了“去国家化”的趋势,还不如说治理要求国家角色积极转型,国家不仅要更加有效地承担起元治理的角色,更要改善治理结构,培育市场力量和公民社会,以调整国家与经济、国家与社会的关系,另外国家在向上、向下、向外转移权力的同时,在全球治理和地方治理的体系中也应发挥重要的作用。
对于发展中国家而言,一个强有力的国家可以更有效地实现分权与民主化,同时,发展市场力量和公民社会的力量离不开国家的保护,超越发展主义、构建社会政策体系也离不开国家的支持,而形成多元主体的治理方式,更是少不了国家的协调。可以说,发展型国家的转型既是更加全面的国家建构的过程,也是完善的治理体系的建构过程。
进入21世纪,科学发展、社会和谐、民生等主题为中国国家建构提出了新的要求,中国需要超越发展型国家的模式。具体而言,未来中国现代国家构建的实现路径有以下几条:(1)中国国家建构的基本目标应是加强民主建设,走法治化的道路。(2)在经济发展的同时,构建全面的社会政策体系,国家应完善其公共服务的职能。(3)中国应继续发挥市场在资源配置中的积极作用,并努力培育公民社会组织,提高社会自主性,合理界定国家-市场-社会三者的关系。(4)提高国家能力、进行国家制度建设还需要有高效的政府组织。
The emergence of governance has challenged the state authority. The framework of "state-centered" has no longer available. Governance provides a way for state transformation. State still plays an important role in governance structure. For developing countries, the state transformation embodies the state building.
From 1980s, "governance" is increasingly becoming a fashionable vocabulary and a new framework in the international social sciences field. The rise of governance challenged the "rule" role of the state and the operation dimension of state power. The governance reflects the market failure and state failure, beyond the liberal and interventionist debate. The rise of governance is no longer "state-centered", and the discussion about the state is no longer confined to the relationship between the state and the market, but the relationship between state and society.
However, there is not only the heterogeneity between governance and the state, but also the homogeneity. Governance has impacted the sovereignty, and the same, it can expand and strengthen the sovereignty. In turn, the state is not the passive one, but it can affect the formation and operation of governance mechanisms. Thus, rather than the emergence of governance embodies the "de-nationalization" trend, it is better to say that governance requires an active transitional role of the state. The state is not only to take the role of meta-governance more effectively, but also to improve the governance structure, develop the market forces and civil society, to adjust the relationship between state, market and society. While the state transfer the power upward, downward, outward, the state should play the key role in global governance and local governance.
For developing countries, a strong country can achieve decentralization and democratization more effectively, at the same time, the development of market forces and civil society, the improvement of social policy system, the formation of multi-governance can not be separated from the protection, support and coordination of the state. It can be said that the transitional process of the developmental countries is also the promotional process of governance structure.
The 21st century, scientific development, social harmony and well-being put new demands to the China's state building. China needs to transcend the developmental state model. In particular, the path of building China's modern state has the following: (1) The basic goal of state building should be democracy and rule of law. (2) To build a comprehensive social policy system, the state should improve its public service functions. (3) China should continue to play an active role of the market in the resource allocation, strive to foster civil society organizations, enhance the autonomy of society, define the boundary between of state-market-society reasonably. (4) Enhancing the state capacity and building the state institution need an efficient government.
从20世纪80年代起,“治理”日益成为国际社会科学领域的一个时髦词汇,也成为社会科学的一种新的分析框架。治理的兴起对传统的国家权威提出了挑战。首先,治理挑战了国家的“统治”角色与国家权力的运行向度。其次,治理反思了市场失灵与国家失败的两种场景,超越了自由主义与干预主义之争。治理的兴起不再是“国家中心主义”的,它对国家的讨论也不再局限于国家与市场的关系,而总是围绕着国家与社会的关系等问题展开。
但是,治理与国家之间不仅仅存在异质性,也具有同质性,治理不仅对国家主权造成冲击,同样也可以拓展和加强国家主权,反过来,国家在治理中也不完全是被动适应的一方,同时也是影响治理机制形成和运作的重要力量。因而,与其说治理的兴起体现了“去国家化”的趋势,还不如说治理要求国家角色积极转型,国家不仅要更加有效地承担起元治理的角色,更要改善治理结构,培育市场力量和公民社会,以调整国家与经济、国家与社会的关系,另外国家在向上、向下、向外转移权力的同时,在全球治理和地方治理的体系中也应发挥重要的作用。
对于发展中国家而言,一个强有力的国家可以更有效地实现分权与民主化,同时,发展市场力量和公民社会的力量离不开国家的保护,超越发展主义、构建社会政策体系也离不开国家的支持,而形成多元主体的治理方式,更是少不了国家的协调。可以说,发展型国家的转型既是更加全面的国家建构的过程,也是完善的治理体系的建构过程。
进入21世纪,科学发展、社会和谐、民生等主题为中国国家建构提出了新的要求,中国需要超越发展型国家的模式。具体而言,未来中国现代国家构建的实现路径有以下几条:(1)中国国家建构的基本目标应是加强民主建设,走法治化的道路。(2)在经济发展的同时,构建全面的社会政策体系,国家应完善其公共服务的职能。(3)中国应继续发挥市场在资源配置中的积极作用,并努力培育公民社会组织,提高社会自主性,合理界定国家-市场-社会三者的关系。(4)提高国家能力、进行国家制度建设还需要有高效的政府组织。
The emergence of governance has challenged the state authority. The framework of "state-centered" has no longer available. Governance provides a way for state transformation. State still plays an important role in governance structure. For developing countries, the state transformation embodies the state building.
From 1980s, "governance" is increasingly becoming a fashionable vocabulary and a new framework in the international social sciences field. The rise of governance challenged the "rule" role of the state and the operation dimension of state power. The governance reflects the market failure and state failure, beyond the liberal and interventionist debate. The rise of governance is no longer "state-centered", and the discussion about the state is no longer confined to the relationship between the state and the market, but the relationship between state and society.
However, there is not only the heterogeneity between governance and the state, but also the homogeneity. Governance has impacted the sovereignty, and the same, it can expand and strengthen the sovereignty. In turn, the state is not the passive one, but it can affect the formation and operation of governance mechanisms. Thus, rather than the emergence of governance embodies the "de-nationalization" trend, it is better to say that governance requires an active transitional role of the state. The state is not only to take the role of meta-governance more effectively, but also to improve the governance structure, develop the market forces and civil society, to adjust the relationship between state, market and society. While the state transfer the power upward, downward, outward, the state should play the key role in global governance and local governance.
For developing countries, a strong country can achieve decentralization and democratization more effectively, at the same time, the development of market forces and civil society, the improvement of social policy system, the formation of multi-governance can not be separated from the protection, support and coordination of the state. It can be said that the transitional process of the developmental countries is also the promotional process of governance structure.
The 21st century, scientific development, social harmony and well-being put new demands to the China's state building. China needs to transcend the developmental state model. In particular, the path of building China's modern state has the following: (1) The basic goal of state building should be democracy and rule of law. (2) To build a comprehensive social policy system, the state should improve its public service functions. (3) China should continue to play an active role of the market in the resource allocation, strive to foster civil society organizations, enhance the autonomy of society, define the boundary between of state-market-society reasonably. (4) Enhancing the state capacity and building the state institution need an efficient government.
引文
[1]参见吴敬琏为《制高点--重建现代世界的政府与市场之争》(丹尼尔.耶金著,外文书店出版社,2000)一书所作的序言.
[1]参见王颖等:《社会中间层--改革与中国的社团组织》,中国发展出版社1993年版;康晓光:《创造希望》,漓江出版社、广西师范大学出版社1997年版;丁元竹:《中国青年志愿者协会》,联合国区域发展中心、清华大学NOG研究中心,2000~王名主编:《中国NGO研究--以个案为中心》,联合国区域发展中心、清华大学NOG研究中心,2001:余晖等:《行业社会及其在中国的发展:理论与案例》,经济管理出版社2002年版:郁建兴等:《在政府与企业之间--以温州商会为研究对象》,浙江人民出版社2004年版;郁建兴等:《民间商会与地方政府:基于浙江省温州市的研究》,经济科学出版社2006年版等。
[1]美国的《管理学术评论》在2003年刊发一期“公司治理”专题,讨论公司治理的最新理论进展,参见Academy of Management Review,2003,Vol.28.No.3.
[2]美国的《治理:政策、行政和制度国际杂志》在2003年刊发一期“多边组织治理研究”专题,讨论多边组织中的民主协商与组织治理。参见,Governance:An International Journal of Policy,Administration,and Instimtions,Vol.16,No.1.
[3]联合国开发署在2002年发布的《人类发展报告》中认为民主治理是人类发展的目标之一。参见UNDP,Human Development Report 2002:Deepening Democracyin a Fragmented World,New York and Oxford,Oxford University Press,2002.
[4]人道治理强调的是治理要为人类发展服务,参见RichardFalk,On Humane Governance,University Park PA:The Pennsylvania State University,1995.
[5]治理国际开始开展对公共治理质量的研究,参见Governance International(2003)URL:http://www.gocint.org
[6]世界银行专门成立了治理质量研究小组,并资助相应的研究项目。英国的《国际行政科学评论》杂志在2003年刊发了一期“公共治理质量评估”专题,从学术角度讨论公共治理质量评估的指数、模型和方法。参见:International Review of Administrative Sciences,Vol.63,NO.3.
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[1]PeterB.Evans,Dietrich Rueschemeyer,and Theda Skocpol,eds.Bring the State Back In(Cambridge:Cambridge University Press 1985).
[1]关于中国不断与世界发生相互作用对国内经济改革产生的影响,参见Thomas G Moore,China in the World Market:Chinese Industry and International Sources of Reform in the Post-Mao Era(Cambridge:Cambridge University Press,2002).
[2]关于中国的国家利益如何进行全球化,参见David Zweig,Internationalizing China:Domestic Interests and Global Linkages(Ithaca,NY:Cornell University Press,2002).
[3]尤其是中国与美国的WTO协议,参见Harry Hongyi Lai,“Behind China's World Trade Organization Agreement、with the USA,”Third World Quarterty,22:2(2001),pp.237-55.
[4]关于乡镇企业的起源与发展,参见William A.Byrd and Lin Qingsong(eds.),China's Rural Industry:Structure,Development,and Reform(Oxford:Oxford University Press,1990);Martin L.Weizman and Chenggang Xu,Chinese Township Village Enterprises as Vaguely Defined Cooperatives(London:Development Economies Research Program,1992);Christopher Findlay,Andrew Watson,and Harry X.Wu(eds.),Rural Enterprises in China(New York,NY:St.Martin's Press,1994);John Wong,Rong Ma and Mu Yang(eds.),China's Rural Entrepreneurs:Market Liberalization,Contractual Form Innovation and Privatization(Aldershot:Ashgate,2000).
[5]George T.Crane,The Political Economy of China's Special Economic Zones(Armonk:M.E.Sharpe,1990).
[6]关于邓小平南巡对中国发展的意义,参见JohnWong和郑永年(编),The Nanxun Legacy and China's Development(Singapore and London:Singapore University Press and World Scientific,2001).
[1]如果按照以前的网民统计口径,计算出的网民数为1.57亿人。
[2]来源:www.internetworldstats.com,2007年6月。
[1]Y.J.Mo,"The Current Status and Future Prospects of China's Mobile Telecommunie.ation," 此文发表于Conference on China's WTO Accession and Its Impact on Northeast Asia,Seoul,Korea,June 28-29,2000.
[2]"China IT Industry Sales Reaebed US$ 21 Billion in 1999," Chinaonline,February 1,2000,http://www.Chinaonline.com.
[3]"War on Net Hots Up," South China Morning Post,July 12,2000;and "E-Commerce in China:The CCIDnet Survey," CCIDnet.com,April 27,2000,http://www.ccidnet.com.
[4]"China's Information Industry Booming in 1999," Chinaonline,February 1,2000.http://www.chinaonline.com
[1]参看课题组(陆建华执笔):《社会发展进程步入全新的开放阶段》,载汝信等主编《2002年:中国社会形势分析与预测》,中国社会科学文献出版社2002年版,第1-19页。
[1]《2001年民政事业发展统计公报(提要)》,中国民政部网站。
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[1]美国的《管理学术评论》在2003年刊发一期“公司治理”专题,讨论公司治理的最新理论进展,参见Academy of Management Review,2003,Vol.28.No.3.
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[1]如果按照以前的网民统计口径,计算出的网民数为1.57亿人。
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