公共管理的理论源流与变革

通过“新公共管理运动”而从传统公共行政理论范式中分化出来的“公共管理”，体现了一种新的理论范式整合。传统的公共行政，以韦伯的官僚制来破解庇护主义，以政治／行政分开来化解政党分肥，以官制度来建构行政组织的基本规范，以泰勒主义来保证效率行政的主导地位。这种行政改进逐渐变成公共行政中的教条主义。结果，官僚制成了官僚主义的代名词，政治／行政两分成了“两张皮”，官制度变成了族主义，效率主导变成了缺乏效果的效率。求解这些疑难导致了传统公共行政范式向“新公共管理”范式的转移。而突出公共性、现代性和综合性的公共管理的理论建构，就是以公共行政为底色而对新公共管理或管理主义、政策分析以及20世纪80年代兴起的公共治理理论的一次理论整合。

The Theory of Public Management: Headstream and Transformation

Public management, split up from the theoretical pattern of traditional public administration through the campaign of new public administration, reflects a new integrative theoretical pattern. Traditional public administration broke up protectionism with Weber's bureaucracy, undermined the collusion of political party and government by parting politics from administration, constructed the basic frame of administrative organizations through the civil service system, and guaranteed the dominance of efficiency administration by Taylorism. This reshaping of administration has gradually turned into doctrinism in public administration, and consequently, bureaucracy became a replacement of bureaucratism, the separation of politics and administration became the antagonism between the two, civil service became red\|tapism, and the dominance of efficiency became efficiency without effectiveness. The seeking for a solution to these difficult problems results in the transformation from the pattern of traditional public administration to that of new public management. The theoretical construction of public management emphasizing publicity, modernity and synthesis is an integration, based on public administration, of new public management, policy analysis and the theory of public governance emerging in the 1980s.