管理、引导与服务：政府职能转变的三重逻辑与动态均衡机制 ——基于“关系—善果”框架的理论建构与中国治理实践

中文摘要

政府职能转变常被理解为从“管理型政府”走向“服务型政府”，但这一二元框架难以解释现代治理中规制、价值引导与服务回应并存的现实。本文在古典公共行政、新公共管理、新公共服务、公共价值理论、整体性治理和行为公共管理研究基础上，提出“管理—引导—服务”三重职能动态均衡框架。文章的核心论点是：三者不是线性替代关系，而是分别对应三种不同的善果实现路径——管理以合法强制“以恶制恶”，引导以柔性介入“以恶促善”，服务以公共供给“以善驱恶”；三者的权重取决于治理情境中“关系形态”的判定，而非固定的职能排序。文章进一步将服务职能锚定于人民的多维正当私善欲求，并给出“公共性—正当性—可持续性”三条转化标准，防止政府职责无限扩张。文章还提出三重职能的联动机制，包括三种启动模式、正负反馈循环与协同边界。中国“放管服”改革、新时代“枫桥经验”和“接诉即办”等实践表明，政府职能转变不是单纯削弱管理、强化服务，而是管理、引导与服务的组合创新与动态校准。本文为突破“管制—服务”二元框架、解释中国政府职能转变和国家治理现代化提供新的分析工具。

Abstract

Government function transformation is often understood as a shift from a "management-oriented government" to a "service-oriented government." However, this binary framework cannot fully explain the coexistence of regulation, value guidance, and service responsiveness in modern governance. Drawing on classical public administration, new public management (NPM), the New Public Service, public value theory, holistic governance, and behavioral public administration, this paper proposes a dynamic balance framework of three government functions: management, guidance, and service. The core argument is that these three functions are not linear substitutes but correspond to three different pathways to good outcomes: management restrains harmful behavior through legitimate coercion ("countering evil with evil"), guidance cultivates public rationality through moderate intervention ("promoting good through evil"), and service reduces social hardship through public provision ("dispelling evil with good"). The weight of each function depends on the dominant relational form in a given governance context, rather than on a fixed functional hierarchy. The paper further anchors the service function in people's multidimensional legitimate desires for private good and proposes three criteria—publicness, legitimacy, and sustainability—to prevent the unlimited expansion of government responsibilities. It also develops a linkage mechanism among the three functions, including three initiation modes, positive and negative feedback loops, and synergistic boundaries. China's reforms of "delegating power, improving regulation, and optimizing services" (fang-guan-fu), the Fengqiao Experience in the new era, and responsive governance practices such as "handling complaints upon receipt" (jiesu jiban) show that government function transformation is not a simple weakening of management and strengthening of service, but a recombination and dynamic calibration of management, guidance, and service. The framework helps move beyond the binary opposition between regulation and service, and provides a new analytical instrument for interpreting China's government function transformation and the modernization of state governance.

关键词：政府职能；管理；引导；服务；善果路径；动态均衡

Keywords: government functions; management; guidance; service; pathways to good outcomes; dynamic balance; state governance modernization