公共行政的生长

【作者】 何修良；

【导师】 李俊清；

【作者基本信息】 中央民族大学 ， 民族地区公共行政管理， 2012， 博士

【摘要】 在社会公共领域,公共性的不断消失和人们对公共性的渴求在不断增加,官僚制的过于理性导致物化现象日益严重,已经无法适应经济社会发展的需要。于此同时公民社会的兴起和社会治理力量的增加,人们通过互动、协商治理的知识分享与力量聚合的集体行动来解决社会公共问题成为了可能,社会力量与社会知识成为了社会治理重要的当下叙事。这构成了社会建构公共行政的理论前提。作为一种行政哲学的探索,从社会建构的意义来理解,公共行政不仅是一个纯粹的客观世界,也是充满各种意义、价值所体现的主观世界。公共行政不是封闭组织系统中政府官员的自我呈现的描述和行动,而是行政人员与社会公众共同参与和分享的实践行动,突出了对公共行政理性建构的批判。社会建构公共行政的过程是行政人员与公民个体自我建构的过程,是有“我们”的公共行政,强调主体间性,社会建构行政中的“人”具有“主动—社会”的自我本质。在社会建构行政的过程中,每一个个体都是积极主动、具有批判反思意识、具有公共精神和公民意识的个体,突出强调了责任伦理和个体伦理在社会建构的重要性。在主要内容上,社会建构的公共行政主张对社会知识的批判与反思,通过整合多元知识，发挥各类主体的积极性,形成不同的行动者生产意义、相互沟通、协商和制定决策的过程。强调公共行政发展是在各类实践活动中进行社会建构的,在多元行动者之间进行对话、协商和合作,促进社会、制度、行政知识与个体之间的积极互动的张扬和辩证良性发展,通过主体赋予公共行政现实特定的意义,并关注这些意义成为公共行政客观化的要素,构成和实现公共行政运行的理念、规则、制度、途径、工具等,从而形成公共行政交往互动的行动场景,满足不同主体的发展需要。在对行政事实和价值进行持续批判中,在不断挑战习惯程式和变革行政方式中,实现多元参与式民主的公共治理愿景。在中国社会转型期,社会建构公共行政具有很大的适用性,具有较强的理论意义和实践意义,社会建构的公共行政作为一种软行政的理念,推动了主体性的中国公共行政建设和促进公民社会良好的生长。在理论创新上,实现了行政理论从重视结果到转向重视过程,从关注体系转向关注结构,从注重力量到注重合作的过程。在具体内容创新上,不断地使公共行政从管理、服务的功能转变到社会自治,从不同主体的积极参与、协同转变到水平性的治理合作,从人们的独白、对话转变到知识与意义的社会建构,从国家的空心化转变到央地嵌入的实在化,从而满足多元社会价值的诉求,不断促使政府职能转变,实现公共利益。实现公共行政的社会建构是一个长期的、复杂的过程。在社会建构中,公共行政强调突出了“场域—社会设计”功能与意义,人们在社会建构的公共场域中分享彼此经验、知识与制定政策。在公共组织运行中,行动与话语是其核心要素,伴随着行动与话语产生的权力、权利、民主一起构成了公共行政社会建构的核心内容。社会建构公共行政的权力是交往式的权力,是主体间性知识融合产生的新的权力,是对社会公民权利的保护,进而形成真实的话语机制,在分享经验与知识的基础上,形成客观化公共政策,实现良好的社会治理。这个过程既是民主化治理的过程,也是民主再生产的过程。在外部条件形成中,社会建构公共行政的发展强调分权的作用、自治的功能和公民社会的形成。公民社会的兴起,社会非营利组织和基层组织成为了治理的主体,社会建构行政的分权强调向基层地方和社会组织分权,发挥多元主体的作用,充分利用社会资本,实现社会自治。更多还原

【Abstract】 In the public field,it is against the economic development of the society that the sense of publicity is disappearing while the demand of it keeps increasing, and the over rational Bureaucracy leads to the further materialization.But at the same time, with the rise of civil society and the increase of the ruling power, it becomes possible that people solve the social problems by interactive and negotiable knowledge-sharing and power-gathering. Public power and knowledge are important narrative means of social governance nowadays. This is the theoretical precondition of social constructional public administration.As a means to explore the philosophy of administration, public administration is not only a pure objective world, but a meaningful and valuable subjective world from the sense of social construction.Public administration is not a closed system where government officials take action by themselves and for themselves, but a practice participated and shared by the officials and the public, where criticism against the rational construction of public administration is emphasized.The process of social construction and public administration is the process of the officials’and people’s self-construction, during which "we" as human beings plays the main part.In this process, everyone is active and critical, and has the spirit of commonality. Thus ethics of responsibility and individuality is emphasized. About the content, social-constructional public administration supports the criticism and rethinking of social knowledge.Through the combination of multi-knowledge and the exertion of the main part’s active practice, different activists communicate and negotiate with each other to make the decision.This public administration is constructed on the basis of different practical activities, to promote the sound development of the society, the system,the administrative knowledge and the individuals. Certain practical significance of public administration is affirmed by the objective elements, and this helps to establish the ideas, rules, systems, methods and tools of public administration. Thus a scene of interactive communication is created and the needs of different parts are fulfilled. With the ongoing criticism made on the fact and value of administration, challenges against old habits and changes which take place on the administrative methods, the wish to build a multi-participating democratic society will be realized.Social constructional public administration applies well to China during the social transformation,both in theory and in practice. As an idea of soft administration, it plays a role in promoting the building of main-part public administration and the healthy development of civil society. In theoretical innovation, great attention is paid to the process, the construction and the cooperation rather than to the theory, the system and the power before.In content, the function of service and control is replaced by social self-governance, participation and negotiation of different bodies by same-level management and cooperation, people’s monologues and dialogues by knowledgeable and meaningful social construction and the far-away central government by a combination of central and local government. In this way, different demand is met, the government function becomes more scientific and the public’s interest will be guaranteed.The realization of public administrative social construction is a long-running and complex process.In process of social construction, public administration emphasizes the function and meaning of the "field-social design".The field of public administration where people share their experience and knowledge and make decisions together. During the operation of the community organization,the action and words are the key elements.Along with the rights and democracy produced by them, they compose the key content of public administrative social construction. The rights derived from public administrative social construction are communicative rights and new rights from the integration of the different bodies’knowledge, which can protect the rights of the people and help the formation of real words language mechanism.Based on the sharing of experience and knowledge, objective public policies can be made and the society will be administered scientifically. This process is the process of democratization, and also the process of democratic reproduction. In the formation of external conditions, the development of public administration in social construction emphasizes the role of the decentralization, autonomous function and the formation of a civil society. The rise of the civil society makes non-profit organizations and primary organizations the main body of the management. Decentralization of social constructional administration gives power to local government and organizations so that multiple bodies have their role to play, social capital can be made full use of, and social self-governance can be realized.更多还原