【作者】 宋敏；

【导师】 张锡恩；

【作者基本信息】 山东大学 ， 政治学理论， 2010， 博士

【摘要】 在公共行政理论发展史上,新公共行政学占有重要而特殊的地位。20世纪六七十年代,美国动荡不安的社会环境,不满当时社会科学的研究取向,对正式体制(家庭、政府、大学、教会、媒体等)的挑战,以及深切认识到当时社会中的各种问题,尤其是社会和经济上的不平等以及行政人员所应扮演的适当角色问题等,促使了意在检讨公共行政理论与实务问题之所在的新公共行政学的产生。新公共行政学的产生既是公共行政学科自身发展的必然结果,也是20世纪60年代美国社会改革在公共行政研究上的一种回应。面对公共行政的合法性危机和学科认同危机,新公共行政学从哲学和价值层面上对传统公共行政的理论基础及其研究方法进行了批判和反思。新公共行政学强调公共行政的公共性特质,反对政治-行政二分和价值中立,认为在行政管理中纯粹的价值中立是不存在的,对行政问题避免做出价值判断的做法不仅使管理者远离合法性,而且远离社会需求。在公共行政研究中,规范性的研究不但是不可避免的,而且不可缺少。新公共行政学认为,效率固然是公共行政价值追求的目标,但不应该是其唯一的价值；公共行政应回归到以自身价值为主体的地位,并形成以社会公平为核心,民主、责任、效率并存的价值体系；公共行政要关注公共利益的实现,更要关注少数族群和弱势群体的利益。新公共行政学强调行政管理者应该以其专业知识从事价值判断,使它们为社会所用,并基于对问题的深刻理解使自己成为变革的倡导者。新公共行政学不仅提出了与主流公共行政价值抗衡的观点,而且在研究方法上也超越了传统公共行政的实证主义研究取向,把现象学、批判理论等运用于公共行政研究之中,使公共行政研究具有了更宽广和开阔的视野。新公共行政学的传统和理论意涵,经由第一次明诺布鲁克会议(1968年)而奠基,并由第二次明诺布鲁克会议(1988年)和第三次明诺布鲁克会议(2008年)而延续。尽管三次明诺布鲁克会议的缘起、经过和会议主题各不相同,但对于公共行政理论和实践的发展,均具有重要的意义和影响。然而,究其实质,新公共行政依然是囿于官僚制的框架去进行民主行政的建构,它要求超越官僚制,却并没有实现这种超越。同时,由于缺乏坚实的理论基础和可操作性的制度架构,在其发展过程中,新公共行政学并未能取代传统公共行政而成为公共行政理论的主导范式,其影响力也无法扩展至整个学科领域。新公共行政学虽然没有能够对传统行政理论的缺陷提出有实用价值的解答方案,其自身也受到其他公共行政理论和学派的批判与质疑。然而,新公共行政学对主流的公共行政理论和实践都进行了尖锐的批判,并指出了问题的所在,这对促使人们重新思考公共行政的定位与未来发展的方向具有重要的意义。新公共行政学为传统公共学界注入了一股新的力量,它使政府开始重视与外部环境的关系,开始面对实际问题,重新正视政府服务对象的地位和需求,并要求把公众的需要作为行政体系运转的轴心,从而对政府功能赋予新的定位并影响了政府职能的履行方式,为近半世纪以来的公共行政发展奠定了良好的基础。无论是在其后持续发展的民主行政理论,还是80年代以来的新公共管理运动,无不深受它的影响。因此,作为一个运动或思潮,新公共行政基本上是成功的。在我国构建社会主义和谐社会和行政改革不断深入的背景下,新公共行政学对政府公共性的高度关注、对社会公平和民主行政价值的积极倡导对于面临改革发展中诸多问题的当代中国公共行政实践同样具有重要的启发意义和借鉴价值。本研究力图以第一手材料为论述依据,结合国内外有关专家学者的研究成果,对新公共行政学的产生背景、理论基础和主要观点进行全面而系统的梳理,并对新公共行政学的理论贡献及其局限进行客观而理性的分析和评价,以期对新公共行政学有一个全面、深入而系统的认识。在此基础上,结合我国公共行政实践,探讨新公共行政学对我国行政改革价值目标的确立以及政府行为选择的借鉴和启示。论文共分为五部分：第一部分：导论。主要介绍论文的选题缘由、国内外研究现状、研究方法和研究思路等。第二部分：新公共行政学的产生和发展。20世纪60年代美国动荡不安的社会环境是新公共行政学产生的时代背景,而现象学、人际关系学派、后行为主义革命以及政治哲学的复兴、新左派运动等都对新公共行政学产生了重要影响,成为新公共行政学兴起的学术背景和重要理论依据。本部分最后系统梳理了新公共行政学的发展历程：三次明诺布鲁克会议的缘起、经过和会议主题,并对三次明诺布鲁克会议进行了比较和分析。第三部分：新公共行政学的理论主张。新公共行政学建立在对传统公共行政批判与反思的基础上,并提出了与主流公共行政价值抗衡的观点。本部分系统分析和归纳了新公共行政学的主要理论主张：重建公共哲学和公共理论；主张规范研究和价值问题；积极倡导社会公平和社会正义；强调公民精神和公民参与；重视行政伦理与行政责任；寻求变革并建构新的组织形态。第四部分：新公共行政学：反思、批评及其影响。本部分系统梳理了学界对新公共行政学的质疑和批评,思考并分析了新公共行政学的理论局限,在此基础上提出作者自己的观点：尽管新公共行政学对公共行政理论和实践的发展产生了重要的影响,但新公共行政学并未实现公共行政理论范式的转变；新公共行政学不是用以替代或取代现实主流行政管理理论的一种理论,而是对现实主流公共行政理论的一种补充和发展。最后,介绍了新公共行政学的后续发展：黑堡宣言、新公共管理运动及其与新公共行政学的关系。第五部分：新公共行政学对我国行政改革的启示。学以致用,理论研究应为现实提供指导。论文最后一部分结合我国国情尤其是社会转型期我国公共行政实践面临的问题与挑战分析和探讨新公共行政学对我国行政改革的借鉴和启示：公共行政应以公平正义作为其核心价值取向；制度公正是实现社会公平正义的重要保障；而公共精神的培育则是实现公正行政的有效途径。更多还原

【Abstract】 In the history of the theoretical development of public administration, the New Public Administration plays an important and special role. In the sixties and seventies of the 20th century, the social turbulence of the United States, dissatisfaction with the research status quo of social science, challenges to the formal institutions (family, government, universities, churches, media, etc.) and deep awareness of various social problems at that time, especially the social and economic inequality and the suitable role that the administrators should play prompted the emergence of the New Public Administration, which intends to review problems of the theory and practice of public administration. Therefore, the emergence of the New Public Administration is not only the inevitable result of the public administration development but also a response of the American social reform in the sixties of the 20th century.Faced with the legitimacy crisis and academic identity crisis, the New Public Administration carried out criticism and reflection on the theoretical basis of traditional public administration and its research method from the philosophical and value level. The New Public Administration stresses on the publicness of public administration and is against the politic-administration dichotomy and value-neutrality. The New Public Administration believes that pure value-neutrality in public administration doesn’t exist, and the concept that avoid making value judgments would make administrators far from the legitimacy as well as the social needs. In the public administration study, normative research is not only inevitable but also indispensable. The New Public Administration argues that efficiency is the goal of public administration, but it should not be its only value; values such as equity and responsibility should be emptied into public administration process and a value system which take the social equity as the core value and coexist with others values such as democracy, responsibility and efficiency should be constructed. The New Public Administration pays attentions to achieve the public interest especially the interests of those disadvantaged. The New Public Administration believes that public administration should be the positions of achieving social equity. The New Public Administration stresses that administrators should make value judgments depending on their professional knowledge enable them to be used for the society, and then make them to be the change advocates based on deep understanding of social problems. The New Public Administration not only puts forward the views that compete with the mainstream values of public administration then, but also oversteps the positivist research methods of traditional public administration by applying the phenomenology and critical theory to public administration research, so that public administration research has a more broad and open perspective.The tradition and theoretical propositions of the New Public Administration was founded at the first Minnowbrook Conference (MinnowbrookⅠ,1968), and continued through the second Minnowbrook Conference (MinnowbrookⅡ,1988) and the third Minnowbrook Conference (Minnowbrook,2008). Although the origins, processes and themes of MinnowbrookⅠ, MinnowbrookⅡand MinnowbrookⅢare different, they are all of great significance and impact to the development of theory and practice of public administration. However, in real essence, the New Public Administration tries to construct the democratic administration within the bureaucratic model. It hopes to transcend the bureaucratic model but doesn’t realize its aim. At the same time, for the reason of lacking solid theory foundations and operational institutional architecture, the New Public Administration doesn’t become the dominant paradigm in public administration, and its influence can not be extended to the whole academic areas in the process of its development.Although the New Public Administration cannot be able to put forth practical answers to deficiencies of the traditional administrative theory and it is also criticized and questioned by other public administration scholars. However, the New Public Administration do make sharp criticism to the mainstream of public administration theory, and point out where the problem lies, which has an important significance in prompting people to rethink the position and the future of public administration. The New Public Administration has injected a new force to the traditional public academic, which makes the government begin to attach importance to relations with the external environment, to face real problems and to re-address the status and needs of the object of governmental services. It also requested that the need of the public should be regarded as the axis of the functioning administrative system, thereby giving the government functions a new position and influences the performance of governmental functions. The New Public Administration lays a good foundation for the development of public administration for nearly half a century. Whether the democratic administration theories after it, or the New Public Management movement are all deeply impacted by it. Therefore, as a movement or trend, the New Public Administration is basically successful. Under the background of building the socialist harmonious society and deepening the administrative reform, The New Public Administration’s concerns about the publicness of government and it’s pursuit of social equity and democratic administration, has a realistic significance and a value of inspiration for Chinese administration reform.Based on the first-hand materials and the present research results of other scholars, this study makes a pectination to the backgrounds, theory foundations and main standpoints of the New Public Administration thoroughly and systematically. Meanwhile, in order to know the New Public Administration comprehensively and thoroughly, the study estimates the theoretical contributions and limitations of the New Public Administration objectively and rationally. Based on above, the study investigates the revelations of the New Public Administration to the value orientation and behavioral choice for Chinese administration reform.The dissertation is divided into five parts:PartⅠ:Introduction. It mainly introduces the reasons of the topic, its research status quo at home and abroad, research methods, research ideas etc.PartⅡ:The emergency and development of the New Public Administration.The social turbulence of the 60’s in the United States is the background of the emergency of the New Public Administration. Phenomenology, human relation theory, the revolution of post-behaviorism, as well as the revival of political philosophy produced significant impacts on the emergency of the New Public Administration, and all of these become academic background and important theoretical basis of the emergency of the New Public Administration. This part at last systematically combed the development process of the New Public Administration:origins, process, and themes of the three Minnowbrook Conferences, this part also compared and analyzed the three Conferences.PartⅢ:The theoretical proposition of the New Public Administration. The New Public Administration based on the criticism and reflection of the traditional public administration and put forward a view that competing with the mainstream values of public administration. This part analyses and synthesizes the main theoretical proposition of the New Public Administration:the reconstruction of public philosophy and public theory; advocating of the normative research and value problems; active advocating of the social equity and social justice; emphasis on the civic spirit and civic participation; emphasis on the administrative ethics and administrative responsibility; seeking for change and construction of a new organizational form.PartⅣ:The reflection, criticism and impacts of the New Public Administration. This part systematically combs the doubts and criticisms to the New Public Administration from other scholars, reflects and analyses the theoretical limitations of the New Public Administration. Based on the former analysis, the author puts forward the view:although the New Public Administration had a significant impact on the development of public administration theory and practice, but it doesn’t achieve the object of shifting the paradigm of public administration theory; the New Public Administration is not intended to replace the mainstream theory of public administration, it is a supplementary and development to the main stream theory. The last of this part introduced the follow-up development of the public administration:the Blacksburg Manifesto, the New Public Management movement and their relationship with the New Public Administration.Part V:Revelation of China’s administrative reform from the New Public Administration. Apply what we learn, theoretical study should provide guidance for practice. The last part of this thesis analyses the reference and inspiration of the New Public Administration to China’s administrative reform combining the current situation of China especially the problems and challenges that public administration faced:Public administration should regard equality and justice as its core values; justice of institution is an important guarantee for social equality and justice; the cultivation of public spirit is an effective way to achieve social equality and justice.更多还原