指標控制與依法行政：雙重治理模式的實證研究

Administration According to Law and Governance by Index: Empirical Research about the Double Model of Governance of Local Government in China

指標考核與依法行政都是控制地方政府的治理機制，均為我國《憲法》所認可。指標控制重結果而輕過程，依法行政只能規範過程而缺乏激勵功能。因此，單獨使用任一治理手段，都無法有效解決“兩個積極性”問題。兩種手段並行使用得當，才是激勵約束相容的治理機制，遠比單一治理模式更為有效。何者占優取決於政治交易成本。實證分析表明，指標控制與依法行政具有互補關係，但互補性開始降低。因指標治理強化中央權威而弱化法治權威，指標控制與依法行政之間有衝突的可能，故而需要區分依法行政和指標考核的不同功能，設計科學的國家治理體系。

As a part of governance system in China, the central-govemment uses double model of governance in¬cluding rule of law and rule by index, to consolidate the authority and legitimacy of the government. Index- mechanism focuses on the result but ignores the standard procedures. In contrast, law-mechanism focuses on the standard procedures but lacks incentive being properly used. The double model of governance is an incentive compatibility constraint, for the rule of law can establish the bottom line of the government behavior, and the rule by index can stimulate the officials by performance measurement and political tournaments. Now, the central-govemment uses performance measurement to promote administration legally. However, the index-mechanism may undermine the authority of the rule of law. We need to coordinate the index-mechanism and the law-mechanism.