公共行政學研究論文

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在二十世紀九十年代，新的管理見解對組織機構應當如何被管理、下屬應當如何被指導、政府項目的消費者應當如何被對待等問題有重大影響。1992年，巴澤勒(MichaelBarzelay)與阿摩亞尼(BabakArmajani)發表《突破官僚制：政府管理的新視野》。該書基于在明尼蘇達州的革新實驗，即通過強調顧客服務、給雇員授權、有選擇性的競爭和減少行政規章制度而改變公共項目。兩位作者認為，政府不應當是官僚型、規章制度約束、強調控制和沒有靈活性，他們向韋伯型的傳統組織結構和運作機理提出了挑戰。

如果說巴澤勒與阿摩亞尼對傳統管理的批評代表著對管理體制改革的呼吁，那么，質量管理運動則提供了內在改革的動力。最初的全方位質量管理(TotalQualityManagement-TQM)源于私有企業部門，但《公共生產力與管理評論》(PublicProductivityandManagementReview-PPMR)在過去二十多年的努力也使我們認識到TQM對于公共部門機構業績與質量改善的重要性。PPMR提供了豐富的案例以及公共機構如何改善、引入、調整并保持連續的質量改進的理論性評論。PPMR雜志的資深主編霍哲(MarcHolzer)教授在生產力與質量管理(ProductivityandQualityManagement)(1995)一文中評論了質量管理以及質量管理對于公共部門管理的啟迪。很明顯，九十年代的TQM已經成為公共管理的基本方法。TQM的核心特征是統計評估、顧客信息反饋、雇員參與質量改善、供應商合作。這些TQM的手段和方法已經成為當今多數經理的“管理常識”。不少人認為，質量管理不僅適用于制造業，而且更適合服務部門。質量管理已成為公共管理的部分基礎。

公共政策與分析的迅猛發展

首先，許多公共事務學院在加州大學伯克利分校的帶領下紛紛部分或全部轉向公共政策，盡管錫拉丘茲大學麥克斯韋爾學院及南加州大學仍然高舉公共行政大旗，亦增添了政策研究方向。最初的政策研究包括政策形成理論、政策分析技術、政策執行、政策計劃和政策評估等，重心開始轉向政策形成（政策制定）和政策內容（政策分析）。其次，一批新成立的雜志為政策研究增添了活力。如政策分析和管理雜志(JournalofPolicyAnalysisandManagement)、政策研究雜志(PolicyStudiesJournal)、政策研究評論(PolicyStudiesReview)以及政策科學(PolicySciences)等。最后，進入二十世紀九十年代，政策科學已經成為一門獨立的研究領域，大有與公共行政學分庭抗禮之勢。政策分析融入經濟學、政治學、公共財政、系統理論以及其它社會科學學科，以研究公共政策如何形成和如何完善政府項目。

結束語：政府改革——永恒的主題

歸納起來，萊特(PaulC.Light)在《改革的浪潮：改善政府工作，1945-1995》(1997)一書中，總結了改革的四大浪潮：1.科學管理，強調嚴格的等級制、分工、清楚的命令鏈；2.向浪費宣戰，重點是監督員、審計員、核對員、評審員；3.警惕的眼睛，倡導陽光、公開性、透明度；4.解放管理，呼吁讓管理者去管理。

財政緊縮和業績改善只是政府面臨的諸多壓力的一部分。進入二十世紀，公眾對政府的信心在下降，這或許是政治家們不得不反復進行政府改革的主要原因。克林頓總統上任3個月就宣布了他的改革計劃，于1993年成立了由副總統戈爾掛帥的“美國業績評論委員會”(NPR)。當我們回眸二十世紀，就不難發現無論是1910,1937,1949,1972,1982，還是1993的政府改革，都有一個共同的假設：即美國聯邦政府的機能失調、組織渙散、業績平平——不能讓公眾滿意。

1883年彭德爾頓法案創立了美國公務員委員會，公務員制度的建立以及城市膨脹的需求催生了美國的公共行政學。1887年，威爾遜提出了創立獨立的行政學學科的構想。隨后，古德諾于1900年談到行政學與政治學的分離。再之后，泰勒開始了科學管理的研究。30年代的羅斯福新政，尤其是布郎諾報告直接誘發了政府部門的膨脹和改革——1993年至2000年執政的克林頓仍舊在重塑政府。一次次改革，一次次不同的主題，變化的是內容，不變的是要改變、要改革的努力。

改革政府并非是美國的獨有現象。無論是東方還是西方，無論是北半球還是南半球，無論是工業發達國家、發展中國家還是前蘇聯或東歐轉軌國家，在二十世紀末都洶涌著改革的浪潮。無論是源于財政危機、管理危機或是信仰危機，出路只有一條，那就是不斷的改革。改革政府不僅是我們時代的主旋律，也必將是未來政府所要面臨的長期挑戰。

作者感謝下列教授在《美國公共行政學百年回顧》及相關課程所給予筆者的指導和幫助：霍哲教授(MarcHolzer)、達布里克教授(MelvinDubnick)、威克（女）教授(MarciaWhicker)、梅戈特（女）教授(AstridMerget)、英格拉姆（女）教授(PatriciaIngraham)、布雷思萊德教授(StuartBretchneider)、斯特勞思曼教授(JeffreyStraussman)。

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