新编MPA英语阅读教程.docx
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新编MPA英语阅读教程.docx
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新编MPA英语阅读教程
新编MPA英语
阅读教程
Unit1
DefiningPublicAdministration
TextA
PublicAdministration
1.Theoccupationalsector,enterprises,andactivitieshavingtodowiththeformulationandimplementationofpolicyofgovernmentalandotherpublicprogramsandthemanagementoforganizationsandactivitiesinvolved.2.Theacademicfieldconcernedwiththestudyof,improvementof,andtrainingfortheactivitiesmentionedin1.
Publicadministrationreferstotwodistinguishablebutcloselyrelatedactivities:
(1)aprofessionalpractice(vocation,occupation,fieldofactivity),and
(2)anacademicfieldaswellastotrainindividualsforthatpractice.Thesimplemeaningofthetermisquitedirect:
itrefersontheonehandtotheadministrationormanagementofmatterswhichhaveprincipallytodowiththesociety,polity,anditssubpartswhicharenotessentiallyprivate,familial,commercial,orindividualistic,andontheotherhandtothedisciplinedstudyofsuchmatters.Inthissimplestmeaning,publicadministrationhastodowithmanagingtherealmofgovernmentalandotherpublicactivities.Thissimpledefinitionconveystheessenceofpublicadministrationandprobablycoversthevastmajorityofactivitiesandconcernsofcontemporarypublicadministration.
Suchasimpleview,though,needsmodificationtoaccountforatleasttwoimportantconsiderations:
First,itmustberecognizedthatprofessionalmanagementofthepublic’saffairsinvolvesnotonlymanagementinthenarrowestsense(keepingthebooks,handlingpersonneldecisions,implementingdecisionswhichhavebeenmadeelsewhereinthepolitico-socio-economicsystems,etc.),butalsosignificantlyinvolvestheplanning,formulating,modifying,andurgingofgoalsandpurposesofmuchofpublicaffairs.Second,itmustberecognizedthatsomemattersofpublicadministrationarehandledinwayswhicharenotpurelyprivatebutalsoarenotpreciselygovernment.
Thefirstconsideration—thatpublicadministrationisinvolvedinthesubstanceofpolicyaswellastheimplementationofpolicydecisions—isfrequentlyalludedtowithtermssuchasthedemiseofthepolitics-administrationdichotomy,theimpossibilityofvalue-freepublicadministration,andtheneedforproactivitybypublicadministrators.Thesetermsreflectthewidespread,thoughnotuniversal,belieforallegationthatitisnolonger,ifeveritwas,defensibletointerpretpublicadministrationassolelyinvolvedintechnicallyobjectivesolutionsorintheneutralimplementationofdecisionsmadebynonadministrativepartsofthepoliticalsystem(e.g.,partisanleadership;electoralprocesses;partyprocesses;partisanbargaining;andparliamentary,legislative,andjudicialinstitutions).Thisbeliefandrelatedunderstandingshaveledtosignificantpublicadministrationattentiontopolicyandpolicyprocess.Somehavefeltaneedforarubricwhichemphasizessuchapolicyfocusandwhichmightalsoencompassorindicatereceptivitytoareasofstudieswhicharecloselyrelated(e.g.,planning,urbanaffairs,economicanalysis,publicpolicyanalysis),andtermssuchaspublicaffairsaresometimesusedforthispurpose.Ingeneral,though,publicadministrationstillfunctionsastheumbrellatermthroughouttheworld,thoughitmustberealizedthatthetermimpliesabroaderrangeofconcernsandactivitiesthanthenarrowmeaningofmanagementoradministrationmayconvey.
Thesecondconsideration—thatnotallpublicadministrationoccursinandthroughgovernmentalorganizations—alsohasledtoabroadeningofthemeaningofpublicadministration.Atvarioustimesinthepastofpublicadministrationithasseemedthatitsessenceandactivitiescouldbeidentifiedbyreferringtononmarketapproachestosocialpurposes,butthisperspectivehasbeenmitigatedbytherecognitionthatpublicprogramsandbenefitscouldbedevelopedthroughandprovidedwithsomemarketcharacteristics.Thustherehavebeendevelopmentssuchasgovernmentalorquasi-governmentalactivitieswhichcompetewithprivatesectoractivitiesorprovidebenefitsthroughuseofapricemechanism;sometimeswater,utilities,sewers,healthcare,education,andotherbenefitsareprovidedinthisway.Therearealsodevicessuchaspubliccorporations,quasi-publiccorporations,public-privatecooperativeenterprises,andgovernmentcontractualarrangementswithnongovernmentalorganizationstoprovidecertainbenefitsorperformcertainfunctions.Indeed,evenforlargepartsoftheworldwheretheprivate-publicdistinctionhasnotbeenasprevalentorobviousasotherplaces(forexample,wheretheeconomyisessentiallydirectedornonmarket),themovementtowardmarketormarketlikemechanismsfortheprovisionofpublicgoodsisincreasinglyamatterofrhetoric,planning,oraction.
Whentheseconsiderationsaretakenintoaccount,publicadministrationisprobablybestdefinedasthepracticeandstudyoftheprofessionalformulationandinfluenceofpublicpolicyandtheimplementationofsuchpolicyonaregularandorganizedbasisonbehalfofthepublicinterestofasocietyitscivicsubparts,anditscitizenry.
DevelopmentoftheField
Itisusualtodatethecontemporarysocialscientificawarenessofbureaucracy(atermwhichcanincludebothprivate,or“business”administrationandpublicadministration)withtheworkoftheGermansocialscientistMaxWeber(1864-1920).Suchdating,though,ismoreamatterofconvenienceorrecognitionofimportantscholarlyinfluencethanofhistoricalaccuracy.
IntheUnitedStates,itisusualtocreditthereformismofthePopulistandProgressiveeraofpolitics(about1880-1920)andespeciallyWoodrowWilson’sacademicarticle“TheStudyofAdministration”(inthePoliticalScienceQuarterlyin1887)forthesystematicandself-consciousdevelopmentofthefieldofpublicadministration.ItisusualalsotoidentifytheearlyyearsofU.S.publicadministrationwithscientificmanagement,aschoolofthoughtlargelyattributedtoFrederickWinslowTaylor(1856-1915)whichemphasizedataskanalysisandefficiencyapproachtomanagement;andwiththesubsequenthumanrelationsmovement,whichemphasizedthehumanandsocialaspectsofworkenvironmentsandmotivationssomewhatincontradistinctiontothescientificmanagementmovement.Bothoftheselattermovementshadtheiroriginsinindustrialandbusinessmanagement,butwereveryinfluentialonpublicadministrationintheUnitedStatesandaroundtheworld.TheperiodofU.S.historybetweentheGreatDepressionandtheWorldWarII(about1929-1945)iscommonlyheldtorepresentU.S.publicadministrationinaself-confident—thoughsomealsosaynaive—phase;thisperiodisfrequentlyreferredtointheUnitedStatesandelsewhereastheperiodofclassicalpublicadministrationororthodoxpublicadministration.ThedynamicsoftheColdWarcompetitionbetweentheUnitedStatesandWesternalliesandtheUSSRanditsallies,andthemanifestationofthiscompetitioninvariousformsoftechnicalassistance,aidineconomicdevelopment,andadministrativeassistancehadanimpactuponpublicadministration.Inthe1960sand1970s,muchoftheworldofscienceandtechnologycameunderattack.IntheUnitedStates,thesedecadesandtheirchallengeshavecometobeinterpretedagainstthebackdropofthecivilrightsmovement(andrelatedmovementssuchasfeminism),VietnamWaractivism,the“newleft,”anti-institutionalism,andparticularmanifestationsofyouthrebellion.Otherpartsoftheworldalsoexperiencedsimilarmovements,frequentlyexacerbatedbyissuesofneocolonialism,nationalism,anti-institutionalism,environmentalism,anti-technologism,andgeneralcritiquesofscientificandtechnologicalperspectivesand,indeed,theentiretyof“modernity.”Allofthesemattershadeffectsuponpolitics,thesocialsciences,andpublicadministration.InUnitedStatesandelsewhere,manyofthesedevelopmentswereaccompaniedbysignificantcritiquesofpublicadministration.Onemanifestationofthiswasadialogueabouttheneedforfundamentalrethinkinginpublicadministration(andforsome,theneedfora“newpublicadministration”).Inthelastcoupleofdecades,thishadbeenaugmentedbytremendoustechnologicaldevelopments(e.g.,incomputerapplicationsandincommunicationsdevelopments)ontheonehand,andevermoresophisticatedphilosophicalandmethodologicalinterpretationsassertingthatwearetranscending“modernity”inwayswhichcallmuchofourquestionontheotherhand.Atthepresenttime,publicadministrationworldwideisincreativetensionandundergoingrapidchangeandattemptsatreconceptualization.Whattheeffectsofallthiswillbeovertime,orwhatthenextdevelopmentalstagewillbe,isunclearbutgenerallyappearstohaveanenergizingeffectuponthefield.
ConfigurationoftheField
Publicadministrationissometimestreatedasthoughitisoneofthesocialsciences,adisciplineinsomesense.Asthenumberofprogramsofferingdoctoraldegreesinthefieldhasincreased,thisinterpretationhasgainedstrength.
IntheUnitedStates,itisrelativelyunusualforpublicadministrationtobeafree-standingdegreeprogramatthebaccalaureatelevel(thoughtherearesomewell-establishedandprestigiousprogramsofthissort—especiallyinschoolsofpublicaffairs,schoolsofmanagement,orschoolsofpublicadministration—andthisapproachmaybeontheincrease).Themoretraditionalandstillusualpatternisforbaccalaureateeducationinpublicadministrationtobeamajororminorspecializationwithinapoliticalsciencedegreeprogram.Master-leveldegreesareincreasinglyemphasizedasdesirableorexpectedcredentialsforfullcommitmenttoprofessionalcareersinmanyfields(e.g.,no
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