从“正当私善”到“公善供给”：政府职责的人性尺度与十一维治理框架

中文摘要

政府职责的界定是公共管理研究的基础问题。职能划分、公共服务和公共价值是既有研究讨论政府职责的常见进路，但这些研究较少追问一个更基础的问题：政府职责从人的基本需要中生成的内在逻辑是什么？不同职责维度之间的张力如何平衡？本文从“现实的人”出发，提出“正当私善欲求—公善供给—政府职责”的分析框架。正当私善欲求并非自私，而是人民在不损害他人与公共秩序前提下，对安全、发展、尊严、能力和选择空间的正当追求。基于此，本文将政府职责概括为十一项维度，并整合为“生存性需求—发展性需求—存在性需求”的三层次结构。文章指出，十一维框架内部存在安全与自由、繁荣与美好、便利与公平、关怀与赋能四组结构性张力，政府治理能力的核心在于处理这些张力的动态平衡。本文提出“情境—权重”动态校准模型，区分危机、常态与转型三种情境下管理、引导、服务三重职能的不同配置方式。文章以浙江“最多跑一次”和北京“接诉即办”为案例，展示该框架的诊断功能。这一框架将“以人民为中心”的发展思想转化为可操作的分析维度，也为服务型政府建设和公共服务评价提供了新的理论工具。

Abstract

Defining government responsibilities is a fundamental issue in public administration research. Existing studies discuss government functions from perspectives such as functional division, public service delivery, and public value, but they seldom ask a more fundamental question: what is the internal logic through which government responsibilities originate from basic human needs, and how should tensions among different dimensions of responsibility be balanced? Starting from the concept of "real human beings," this paper proposes an analytical framework of "legitimate self-regarding needs — public-oriented provision — government responsibilities." Legitimate self-regarding needs are not selfishness, but rather people's legitimate pursuit of safety, development, dignity, capability, and space for choice under the condition of not harming others or public order. Based on this, the paper identifies eleven governance dimensions and integrates them into a three-tier structure of "subsistence needs — developmental needs — existential needs." The paper further argues that four structural tensions exist within this framework — security vs. freedom, prosperity vs. beauty, convenience vs. equity, and care vs. empowerment — and that the core capacity of governance lies in managing these tensions dynamically. A "context-weight" dynamic calibration model is proposed, specifying different configurations of management, steering, and service functions in crisis, normal, and transitional contexts. Two case studies — Zhejiang's "maximum one visit" reform and Beijing's "handling complaints upon receipt" — are used to demonstrate the framework's diagnostic capacity. This framework translates the people-centered development philosophy into actionable analytical dimensions and offers a new theoretical instrument for service-oriented government construction and public service evaluation.

关键词：政府职责；正当私善欲求；十一维治理；治理张力；服务型政府

Keywords: government responsibilities; legitimate self-regarding needs; eleven-dimensional governance; governance tensions; service-oriented government