治理理论的核心是探讨公共部门改革中国家本质和作用的变化。该理论主张改变政府作为单一行动者、以层级制为主的运作模式,强调政府与私人部门和志愿部门形成伙伴关系,政府不再以强制性权力直接干预自组织网络。但对政府的具体职能,学术界有着多样化的理解。有的学者主张国家权力不参与或最低限度参与治理过程,有的学者则主张更为积极的政府参与,强调通过国家的独特优势弥补自组织失灵。治理理论还存在较为重要的缺陷,缺乏与已有知识谱系的关联,在基本概念和理论取向上缺少共识,缺乏经验研究支撑。本文认为,以具体政策领域的经验研究为基础,构建具有明确条件、可检验的理论命题,是丰富和发展治理理论的重要方向。 The core of governance theory is to explore changes in the nature and role of the state in public sector reform. The theory advocates a change in the government as a single actor and a hierarchy-based mode of operation, emphasizing that the government forms a partnership with the private sector and the voluntary sector and that the government no longer directly interferes with self-organizing networks with mandatory powers. However, the specific functions of the government, the academic community has a variety of understanding. Some scholars advocate that state power does not participate in or minimally participate in the governance process. Some scholars advocate more active government participation, and emphasize making up self-organization failure through the unique advantages of the country. There are still some important defects in governance theory, lack of connection with existing pedigree, lack of consensus on basic concepts and theoretical orientation, and lack of empirical research support. This paper argues that it is an important direction to enrich and develop the theory of governance based on the empirical research in the specific policy fields and to construct the theoretical propositions that can be tested with definite conditions and conditions.