公共行政的管理主义-反思与批判

[]2000-12-15[]张成福(1963-),陕西眉县人,中国人民大学教授,博士生导师,法学博士,主要从事公共行政行政法学的研究:(中国人民大学行政管理学系,北京100872)[]公共行政的管理主义是20世纪70年代后在特定背景下发展起来并产生广泛影响的政府治理理论以及运动它为政府管理与改革以及公共行政研究提供了不同的视野管理主义存在着许多值得反思与批判的缺陷:基本价值的偏颇对市场机制的迷信公私管理的混淆不当的顾客隐喻等21世纪公共行政的重建需要关注公共行政的公共性,关注政府与社会市场公民的互动,不可陷入偏狭的陷阱[]公共行政;管理主义;反思性批判[]D035[]A[]1000-5420(2001)01-0015-072080,(Rosenbloom),,,[1],,,)(empiricalanalyticalscience))(historica-lhermeneu-tical)(criticallyorientedsc-ience),(context),2080,,,,(managerialism)(market-basedpublicad-ministration)(entrepreneurialgovern-ment),,(NewRight)(NewGovernance),,,,(newparadigm)[2],?OECD(),)15)20011,:(1);(2);(3)[3](Ranson)(Stewart),:(1),(2)(3)(4)(5)(6)(7)[4](Hood):(1),(2),(3),(4)(disaggregation),(5)(6)(7)[5],:(1)(2),,,,,(3),(customerdriven)(4)/0,,(5),,(6)(empowered)(7),(Pollitt),,,,,[6],,,,(),,,,,,,,,,,,:,;,,;,(),,,,,,,,,,,(),,,,,)16)20011,(ungovern-ability),,,,,(G.E.Caiden):,,(administrativearrogance)(ineffec-tiveness)(inefficiency)(administrativeimperialism),,[7],,,(),/0,,207080,,60,;/0;;,;;,,,,,,,,,,/0,,,,,/,0,[5],,,,,(goodgovernance),,,,,,/0,,()(PublicChoiceTheory))(Princ-ipalAgentTheory)(TransactionCostTheory)(TheNeoclass-icalTheory),:(1);(2);(3),,,:;;;,,)17)20011,,;,/0,,/0,,,,,(),/E0:(economy)(efficiency)(effeteness),(instrumentrationality),,,,,,,(RobertsDenhardt),,,,,,/0(moralcontent)[8](Bellone)(Goerl),,(autonomyvsaccountability)(personalVisionvscitizenparticipation)(secrecyvsopenness)(risk-takingvsstewardshipofpublicgood),[9](Terry),/0[10],(),,,,,,,,,,,,(marketfundamentalism),,(mar-ketfailure),,,,,(OrganizationalEconomics),,,,,,,,,,:(indivisibil-ity),(),,;;;;(barrierstoentry);,,,,,,,(privatiza-)18)20011tion),(contractingout),,/,,,0[11],,,,56:/,,0,/,0:/,,0[12]():,(genericmanagement),,(),,,/0,,(deconstruction),,,(Waldo)1948,/0[13](Allison),,[14](Ott)(Hyde)[15][1],,:,,,,,,()/0),(customersatisfied),;,;,;,[16],,,,;,;,;,,,(G.Frederickson),/0(owner),,/0,,[17],,,:,,,,;,,)19)20011,,,,,,,,,,,,,,,,,,,,,,(J.Jong),,/0(conceptualframework)[18],(puzzlesolutions),,(beforethefact),,/0/0/0/0,/0,,,,,,,21,:1.,2.,,/03.,4.,5./0,6.,/0,,,7.,8.,9.,,,:/,;,,,,,,,,0/,,,0,[][1]Rosenbloom,D.PublicAdministration[M].Mc-Graw-Hill,1998.20.[2]Hughes,O.E.PublicManagementandAdminis-tration[M].ST.Martin.sPress,1998.1-4.[3]OECD.PublicManagementDevelopments[M].Paris:OECD,19901991.)20)20011[4]Ranson,Stewart,S.ManagementforPublicDo-main[M]1St.Martin.sPress,1994.14-15.[5]Hood,C.A1PublicManagementforAllSeasons[J].PublicAdministration,1991,(69):3-19.[6]Pollitt.ManagerialismandthePublicServices[M].BasilBlack-well,1990.[7]Caiden,G.E.AdministrativeReformComesofAge[M].WalterdeGruyter,1992.[8]Denhardt,R.B.TheoryofPublicOrganization[M].Brooks/cole,1993.[9]Bellone,C.J.andGoerl.ReconcilingPublicEn-trepreneurshipandDemocracy[J].PAR,1992,(2):131-132.[10]Terry,L.AdministrativeLeadership,Neo-man-agementandthePublicManagementMovement[J].PAR,1998,(4).[11]Donahue,J.ThePrivatisationDecision:PublicEnds,PrivateMeans[M].NewYork:BasicBooks,1989.[12]#1[M]1:,20001[13]Waldo,D.TheAdministrativeState[M].HolmesandMeierpublishers,1948.159-191.[14]Allison,G.T.PublicandPrivateManagement:AreTheyFundamentallyAlikeinAllUnimportantRe-spects?[R].OMPDocument,1980,127-52-1.27-38.[15]Ott,J.Steven,Hyde,AlbertC.andShafritz,JayM.PublicManagement:TheEssentialReadings[M].Chica-go:LyceumBooks/NelsonHall,1991.[16]Osborne,DavidandGaebler,Ted.ReinventingGovernment:HowtheEntrepreneurialSpiritisTransform-ingthePublicSector[M].MA:Addison-Wesley,1992.[17]Frederickson,H.G.TheSpiritofPublicAdmin-istration[M].Jossey-Bass,1997.[18]Jun,Jong.PhilosophyofAdministration[M].DaeyoungMoonhwaInternation,1994.()ManagerialisminPublicAdministration:ReflexionandCriticismZHANGChen-fu(DepartmentofAdministrativeManagement,RenminUniversityofChina,Beijing1000872,China)Abstract:Managerialisminpublicadministrationisapopulartheoryandmovementofgovernancede-velopedunderparticularcircumstancesafterthe1970s.Itoffersadifferentviewovermanagement,reformofthegovernmentandthestudyofpublicadministration.However,theauthorpointsoutthatManagerialismhasmanydefectsthatareworthyofcriticalreflexion.Amongtheseare:skewedbasicvalues,superstitiousbeliefofmarketingmechanism,chaoticmixtureofprivateandpublicmanagement,improperconsumermetaphorandsoon.Reconstructionofpublicadministrationinthe21thcenturycallsuponconcernsinpub-licnessofpublicadministration,andintheinteractionbetweengovernmentandthesociety,aswellasbe-tweenthemarketandthecitizens,sothatpitfallscanbeavoided.Keywords:publicadministration;Managerialism;reflexionandcriticism)21)20011