TEACHING PUBLIC ADMINISTRATION: EDUCATION OR TRAINING?*

Abstract: There is an ambivalence in attitudes to public administration as a field of study among both academics and practitioners in Australia. Teachers, researchers, students, public servants seeking training and managers have differing interests and expectations. Disagreements about the field have contributed to the lack of a unified framework of concepts, while the field has fragmented into public administration, public policy and public management, aside from other divisions such as "old" versus "new" public administration. "Education" and "training" have taken diverging paths and academics and practitioners have drifted apart. There needs to be a closer dialogue that can only be based on a generally agreed paradigm for Australian Public Administration as a field of study.     

从第十一个五年规划建议看公共管理

作为公共管理学科领域中的一员,在学习《中共中央关于制定国民经济和社会发展第十一个五年规划的建议》和国务院温家宝总理就建议讨论稿所作的说明时,联系到我国公共管理实践和学科研究,是很自然的事。因为公共管理正是要为国民经济和社会发展服务的。在这方面,过去所取得的巨大成就和不足之处,都有公共管理状况的因素,今后在实施“十一五”的全过程中,仍然需要继续加强和改进公共管理。为了避免泛泛而谈,根据温总理所归纳的“十一五”时期的主要任务和需要处理好的几个重大关系,从公共管理角度加以论述。坚持统领发展全局和要全面贯彻落实的是科学发展观。     

Defining the Boundaries of Public Administration: Undisciplined Mongrels versus Disciplined Purists

"Undisciplined mongrels" are faculty from public administration programs who publish in a wide variety of journals. We expected that undisciplined mongrels would have more successful publishing records than their counterparts—"disciplined purists" who publish exclusively in public administration journals. This expectation is supported through an analysis of journal publications by a panel of 91 junior faculty members. We also expected that the methods that are currently used to rank public administration programs would discard a massive body of publication activity by public administration faculty. This expectation is also soundly supported. Findings indicate that from 1990 through 1997, a scant 18 percent of the articles published by the faculty panel were published in the highly selective set of 11 journals that are currently used to rank public administration programs.     

公共精神：公共行政现代化的价值维度——一种基于和谐社会视角的分析

近代以来直至当前的和谐社会之诉求,现代化始终是萦绕在中国人心目中的一个实质性问题.然而,现代化又是一个全方位、多层次的系统工程,公共行政现代化是其应然维度之一.现代化从"器物"到"政制"直至社会精神文化和伦理价值观念这一结构性的深化历程,更昭示了公共精神正是公共行政现代化须臾不可"缺场"的价值向度.实际上,从公共行政自身发展的认识论与方法论双重维度去探究和反思公共行政的现代化现象,我们也发现公共精神不断地从边缘向中心位移,从"遮蔽"状态走向"解蔽".其中,公共行政现代化所涵摄的民主理念、公正理念、契约精神、公共服务精神以及和谐、科学的发展理念等公共精神既是公共行政现代化本身,也是构建和谐社会的精神骨核与价值引擎.一种多元宽容、诚信友爱、公平正义、和谐有序的社会公共生活能够得以形成和延续必须以发育良好的公共精神为其基本精神质料和社会价值支撑.我们需要从不断健全和完善市场经济体制,开新传统公共精神资源,大力培育公民社会、拓展公共治理的实践参与,加强公共意识教育、提升公共理性水平等几个方面努力来促进公共精神的化育与养成.     

部门利益冲突的解析与防治

当前“政府权力部门化，部门权力利益化”的现象，以部门利益冲突加大了政府机构运行的经济成本，同时加大了我国的社会和政治风险，公权力和经济利益挂钩与政府职能划分不清及其行政监督不力是其重要原因。只有建立公共财政制度和加快大部制改革同时转变政府职能，实现政、企、事相分离，开才能切断利益与权力的关系，只有加强公共行政立法和行政监督来消除本门利益冲突，才能防止政府的公共权力被具有私利的主体所分解，所以，“发展和谐服务型政府”，为社会公正提供有效保障，是以实现政府从“部门行政”向“公共行政”转变的必由之路。     

The Evolution of the Nigerian Federal Administration System

This article reviews the major consequences for the evolutionof Nigeria's public administration of the process by which the"loose" model of federalism adopted in 1954 was transformedinto one in which the national government became dominant from1966 onwards. To illustrate how this development affected theemerging public administration system, two broad themes areexamined: (1) the structure, organization, and functioning ofthe federal and subnational units and (2) issues in intergovernmentalrelations, notably the allocation of jurisdictional powers,fiscal federalism, public personnel administration, and localgovernments. The conclusion points out some of the key issuesthat are likely to dominate the Nigerian federal system duringthe next decade.     

Particularism versus Universalism in the Brazilian Public Administration Literature

The author draws on the Brazilian public administration literature to discuss the conflict between the need to remain open to lessons from elsewhere, while at the same time remaining grounded in a particular local context. The article begins by presenting calls by a number of Brazilian public administration scholars for what might be termed an "administrative particularism," or an assertion that universal lessons do not apply in the discipline. This is followed by a discussion of the challenges that these and other Brazilian public administration scholars identify. Further discussion will suggest these challenges, and many of the solutions most commonly offered for them, imply that, far from a uniquely Brazilian public administration, the country seeks to move closer to the model of public administration practiced elsewhere, especially in the developed world.     

TOWARDS RESOURCEFUL PUBLIC ADMINISTRATION: A MANAGEMENT POLEMIC

Abstract: Doctrines of public administration are in ferment. Proponents of the newer public management challenge defenders of the traditional public service. Academic commentators frequently oppose both the newer managerialism and the traditional apolitical professionalism. The net effect is to distort the call for better public management. One useful step out of the mess is backwards—toward a recovery of the fundamentals of democratic political theory, of that original sense of the governing partnership between public servant and politician. In the 1950s, Fritz Morstein Marx called it resourceful public administration. By reviving this older sense of public resources, we tap a fundamental but frequently ignored vein of public administration theory. Through "the other Marx" we rediscover his mentor, John Stuart Mill, from whom we still have much to learn about our greatest administrative resource—our people, both politicians and public servants. Both Marx and Mill give us salutary examples on how to ask the basic questions of principle, which we tend to bypass in our pursuit of pragmatic arrangements.     

Administrative Reforms and Their Impact on Training the Public Bureaucracy in Bangladesh

Bangladesh has recently experienced a number of administrative, institutional, structural and policy reforms which have attempted to recast the modalities of the public delivery system and address the perennial issues of "efficiency, effectiveness and productivity" in the public administration system. A number of these reform packages have called for drastic changes in the mode of governmental operations/processes as well as in institutional arrangements.
In this article, the author has reviewed such reform efforts and their impact on the overall public administration training curriculum and academic programs of the training institutions as well as with the universities in Bangladesh. The entry–level training packages have not adequately covered the critical areas that have been highlighted by the different reforms. The article concludes with a suggestion to review all entry–level training programs and identify some thematic areas to make the training programs "practical, pro–active and action–oriented." A close collaboration between the universities and the public administration training institutions is also strongly recommended.     

Restoring the Rule of Law to Public Administration: What Frank Goodnow Got Right and Leonard White Didn't

Although the rule of law is universally regarded as a fundamental principle of democratic governance, the field of public administration continues to exhibit the "anti-legal temper" that emerged in the 1920s, when Leonard White's managerialism largely displaced Frank Goodnow's emphasis on the intimacy of law and administration. Although administrative law is a distinguished subfield of scholarship and practice within public administration, the consensus view within the profession seems to be that law is one of many constraints on administrative discretion rather than its source, a challenge to administrative leadership rather than its guiding principle. In addition to unacceptably narrowing the range of values infusing public administration, such a view undermines the profession's ability to contribute to the design of our governance arrangements at a time when constitutional institutions are being seriously challenged. To fulfill its constitutional role, public administration must commit itself to the rule of law as an institution that secures its legitimacy.     

中国服务型政府建构的路向分析

中国传统的政府管理模式是在计划经济体制下形成的,是政治、经济和行政长期一体化的结果,是在中国传统文化的土壤中产生的。由于这种政府管理模式是以权力为中心的,因此,可称为“权力行政模式”。中国是发展中国家,国内改革和参与解决全球问题的双重压力,给政府管理带来根本性的挑战。“权力行政模式”难以适应21世纪的政府管理要求。以“公共服务”为核心的是未来政府管理可选择的理想模式。     

Retrofitting the Administrative State to the Constitution: Congress and the Judiciary's Twentieth-Century Progress

One of the twentieth century's "big questions" for United States government has been how best to retrofit, or integrate, the full-fledged federal administrative state into the constitutional scheme. The public administration orthodoxy initially advocated placing the executive branch almost entirely under presidential control; Congress and the federal judiciary responded otherwise. Congress decided to treat the agencies as its extensions for legislative functions and to supervise them more closely. The courts developed an elaborate framework for imposing constitutional rights, values, and reasoning on public administration practice. As the challenge of retrofitting continues into the twenty-first century, public administrators might profitably play a larger role in the constitutional discourse regarding the administrative state's place in constitutional government.     

孙中山与公共管理

孙中山是中国20世纪三大伟人中的第一人.他深信应该"天下为公",并将终于实现世界"大同".他对"政治"的简单解释为"政"指"众人的事","治"是"管理",亦即"管理众人的事"就是"政治".他努力谋求公共利益和重视合格公共管理人员的培养,在理论和实践方面,很接近或相同于后来成为新兴独立学科的"公共行政"或"公共管理"所研习的内容.因此,他可算是中国现代公共管理研究的先驱.     

Privatization and bidding in the health-care sector.

Public provision of health care, as under Medicare and Medicaid, traditionally "privatized" major production decisions. Providers of care, largely private physicians and hospitals (but also public hospitals), made significant decisions about public beneficiaries' access to care, the quality and quantity of individual services, and the prices to be paid. The result was high access and quality/quantity, but also high program spending, which has prompted a reassertion of public budgetary control. Newly activist program administration is using various mechanisms to promote economizing. Unable and unwilling to specify standards of public access or quality/quantity too overtly, administration instead seeks to squeeze prices--mainly through administrative price setting but also through competitive bidding and voucherlike arrangements. Under such new incentives, major choices that in many non-American systems would be public are here "reprivatized" to be resolved out of the limelight by beneficiaries, traditional providers, or new intermediaries like Competitive Medical Plans.     

“三渔问题”与公共政策调整思路——辽东湾海蜇捕捞案例分析

辽东湾海蜇捕捞案例反映出典型的以渔业资源枯竭,渔民生活困难,渔村经济薄弱为特征的"三渔问题".采用社会经济学原理和博弈论方法分析"资源公有 私人抢捕"(对应"公地悲剧 囚徒困境")的典型经济与社会问题,特别是海蜇捕捞冲突的机理与协调问题,探讨如何建立有效的社会协调机制,实现规范的公共管理.辽东湾海蜇捕捞违捕现象连年发生,已经形成了一种"动态稳定状态",说明海蜇捕捞这一公共管理事物出现了一定程度的市场失灵和一定程度的政府失灵现象.其中,产权问题是个核心问题.产权所有和使用可有四种基本组合:(1)资源公有 公共捕捞;(2)资源私有 私人捕捞;(3)资源公有 私人捕捞;(4)资源私有 公共捕捞.理论和现实都证明,第一种组合效率低下;第二种组合在不少国家为常态;第三种组合最容易出现"公地悲剧",这也是辽东湾的现实.但研究发现,海蜇资源具有较强的"竞争性"和"排他性",悲剧是可以避免的;第四种组合似乎没有可行性,但只要解决了"排他性"问题,很可能也是一种选择.     

A MANAGERIALIST STRIKES BACK

Abstract : In view of a rather one-sided recent debate, "managerialism" in bureaucracy calls for a defence. The alternate paradigm, which is said to turn on legal as opposed to economic rationality, has not been systematically dealt with by the anti-managerialists. The functions to which it refers have always in practice been only a small element of public sector activity. The new artifacts of administration are properly viewed as a public sector reflection of wider thought on organisations and quality of working life. They have some common origins with contemporary private sector practice rather than being derived by copying the private sector. Management and policy skills are not mutually exclusive; indeed the contrary is true. Finally, in relation to broadly accepted ethical norms, modern public administration compares well with that which has gone before.     

THE MANAGEMENT OF PUBLIC PROVISION

Abstract: This work addresses the special character of public management by positing some important distinctions under-represented in current academic literature. In exploring the primary distinction between public administration and public management, the analysis proceeds from a treatment of public management as control of a production process uniquely configured as a combination of policy brokerage and resource management, to a demonstration of the economic agency (value addition) of public managers. The paper also presents a contextual analysis of the scope and scale of the public sector as this pertains to a model of "public provision", and introduces some new ideas regarding the temporal characteristics of public management as it responds to a discrete set of three cycles: the budget cycle, the product cycle and the policy cycle.
This work aims to provide tools for analysis which both distinguish public administration from public management and distinguish the economic agency of private managers from that of public managers. The general argument is that the "public provision process", while similar to a conventional production process, contains unique and important responsibilities which need to be understood and defended. By the same token, public managers ought to be empowered by a knowledge and identity which express their importance as economic agents who contribute both to the commonweal and to the wealth of the nation.     

Informing Public Health Policy and Practice: The Strategic Management of Research Processes and Organizations

Better health depends on how well federal public health organizations perform both scientifically and organizationally. The performance challenges of public health science organizations are not carbon copies of those facing public service organizations. This article examines how one federal science agency in the public health field has instituted a performance orientation over a dozen years, offering a detailed illustration of how the in-principle advantages of the "managing for performance" approach can be realized in practice. In taking science more seriously as a basis for public policy, the new administration should not lose sight of lessons it can learn from its predecessors about managing science organizations for performance.     

Spirituality and Public Service

The common pronouncement of a career in public service as a "calling" echoes with a decidedly spiritual chord. However, the spiritual roots of public service have been ignored in much of the public administration scholarship. This essay examines the empirical connection between individual spirituality and participation in public service occupations. Data from the 1998 General Social Survey are analyzed to determine whether those in public service occupations are more spiritual than persons in non–public service occupations. The findings indicate that individuals in public service occupations, especially government-related ones, are in fact more spiritual in their attitudes than others. Moreover, belief in the notions of transcendence and compassion for others are more pronounced in public service employees. Finally, the experience of interconnectedness and life meaning is greater for those in the public service.     

Resilience in Public Administration: The Work of Elinor and Vincent Ostrom from a Public Administration Perspective

This essay examines the remarkable careers of Elinor and Vincent Ostrom, exploring polycentricity and human management of common property resources from the “no‐name fields” of public administration in the late 1950s, through the metropolitan public service industries and public choice approach to democratic administration in the 1960s and 1970s and the institutional analysis of common pool resource management of the 1980s and 1990s. It continues with the diagnosis of the self‐governing capabilities of socio‐ecological systems in the 2000s. Many continuities underlie focal shifts in attention. Their work will be related to developments in the public administration field along with illustrations of their pioneer example for public administration on research as a collaborative enterprise. The 2009 Nobel Laureate in economics, Elinor Ostrom has been working from an academic background and intellectual tradition that, particularly through her long‐term collaboration with Vincent Ostrom, is strongly rooted in the classical and prevailing institutional concerns that may be seen as core to public administration as an academic field of education and research.

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