袁铭蔚 中期读书报告.docx
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袁铭蔚 中期读书报告.docx
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袁铭蔚中期读书报告
TheReadingReportofPublicOrganizationTheory
Ifpublicorganizationarebydefinitioncommittedtothepursuitofpubliclydefinedsocietalvalues,theirmemberscarryaspecialburdenthatothersdonot---thattheyshouldalwaysactinkeepingwithdemocraticnorms.Whethertheyassisitinthedevelopmentofpublicpurposesorfacilitatetheirachievement,membersmustalwaysbeattentivetothosevaluesthatgivepublicorganizationstheirdistinctivecharacter.Publicadministrators,inthisview,musthelptoensurethatthecentralpoliticalcommitmentsofthesocietyareextended,andtheymustdothisinpartbytheexampleoftheirownwork.Forthesereasons,thestudyofpublicadministrationmustembracenotonlysocialtheorybutalsopoliticaltheory,anunderstandingofthewaysinwhichpublicorganizationscontributetothegrowthofademocraticsociety.
Curiouslyenough,althoughsuchapoliticaltheoryofpublicorganizationswouldseemtobethesinglemostimportanttopicforstudentsofpublicorganizationstoconsider,concernsotherthanthosewenormallyassociatewithdemocraticpoliticaltheoryhavehistoricallybeengivenprecedence.Issuesoffreedomandjustice,equalityandparticipationhaveoftentakenabackseattoissuesofefficiency,technique,andcontrol.Evenso,apoliticaltheoryofpublicorganizationshasbeenconstructed,perhapsasmuchbydefaultasbydesign.
ThiswasthesignificantmessageinDwightWaldo’sperceptiveworkTheAdministrativeState.Inthisbook,Waldoproposedtotracethedevelopmentofthefieldofpublicadministrationfromtheperspectiveofpoliticaltheoryandthehistoryofideas.Helaterreflectedfurther:
LookingcloselyattheliteratureofpublicadministrationthroughthelensofPoliticalTheory,itseemedtomeplainlytruethat,paradoxically,ithadamatrixofpoliticaltheory:
paradoxicallybecausethoseproducingtheliteraturefrequently,characteristically,presumedorstatedthattheyweregettingawayfrommerepleasantcloudgazingandwereaddressingthemselvesdirectlytotheworldoffactsandthehard,importantbusinessofhowmoderngovernmentdoesandshouldperformitsfunctions.
AsviewedbyWaldo,theearlywriterscommentedonsuchhighlytheoreticalquestionsasthegoodlife,criteriaforpublicaction,andwhoshouldrule.Theywereconfrontedwithquestionsthathadimportanttheoreticalimplications,andtheiranswersconstitutedaformofpoliticaltheory---apoliticaltheoryisperhapsthemostimportantofourage,foritspecifiesthecommimentswearewillingtomakeintheconductofpublicaffairsinanorganizationalsociety.
Theearlywritingsonpublicadministrationnotonlyconstitutedapoliticaltheoryofpublicorganizationsbutalsosetatoneforlaterworkinthefieldofpublicadministration.Byvirtueofwhatwasincludedorexcludedbytheearlywriters,publicadministrationanditsrelationshiptothelargerpoliticalsystemweredefined.Forthisreason,anexaminationoftheworksoftheearlywritersandtheirinfluenceonadministrativetheoryandpracticewillprovideuswithabettersenseofthecentralmetaphorsthatcontinuetoguideourunderstandingofpublicorganizations.
Evenbeforetheformalstudyofpublicadministrationemerged,aroundthebeginningofthetwentiethcentury,manytheoristsandpractitionershadcommentedontheroleofthetwentiethcentury,manytheoristsandpractitionershadcommentedontheroleofadministrativeagenciesinperformingtheworkofthestate.Mostnoteworthyintheearlydaysofthecountry’shistoryweretheviewpointsexpressedbyAlexanderHamiltonandThomasJefferson.Hamilton’sadministrativetheory,asamemberoftheexecutivebranch,arguedonbehalfofastrongnationalgovernmentwithconsiderablepowerresidingintheexecutive.LeonardWhitedescribesthispositionasgrowingdirectlyfromcertainelitisttendenciesamongtheFederalistsgenerally:
“TheFederalistpreferencefortheexecutivebranchwasafaithfulreflectionoftheirdistrustofthepeople.Anintelligentperceptionofsoundpublicpolicy,intheirview,couldcomeonlyfromwell-educatedmenofaffairs,menwithtrainedmindsandbroadexperience---inshortfromtheupperclasses.”
ButHamiltonalsopreferredexecutiveprerogativeonthegroundsofadministrativeprinciple.Inthisview,action,tobeeffective,musthavecleardirection,andsuchdirectioncancomefromonlyonesource,aunifiedexecutive.Whereasdissentanddiscussionareimportantinlegislativedeliberations,theexecutivebranchcannotfunctioneffectivelywithoutunityofcommand---onefinalarbitratorwhosedecisionswillbeacceptedbyall.Moreover,asingleexecutivecanbeheldresponsibleforhisorheractions;asinglecenterofpowermeansasinglecenterofresponsibility.Thispreferenceforastrongnationalexecutivedidno
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