全球化与行政管理制度变迁

政府转型是国际政治和国内政治互动过程中的重要问题,而政府在面对国际制度挑战中处于核心角色,形成和国际制度相适应的协调制度是政府转型的主要特征.通过大量的实证材料和个案分析,在对国际制度、公共政策协调和发展型政府理论进行理论综述的基础上,阐述了国际制度下的政府转型现象.这种现象指的是在发展型政府国家,国际制度为国内政策制定引入了全球化因素,并促使国家内部建立与国际制度联系的对口协调部门或制度.这些都有利于国际制度进一步塑造国内决策环境.伴随着国际制度的发展,发展中国家决策过程日益专业化和多元化,政府转型成为全球化时代中的一个显著特点.主要采用文献分析和实证研究相结合的方法,在实证研究中采用文本分析和深度访谈的方法.发现,国际制度会通过议事日程和规则的变化、新的配套协调决策机构的建立等来影响部门利益的表达、部门与跨部门的知识(信息)的建构、以及各部门对最后决策形成的意见、建议、交换,并导致新的国内制度的产生.     

Low‐trust bureaucracy: Understanding the Mexican bureaucratic experience

Latin American bureaucracies are notorious for their inefficiency and opacity, yet there is very little empirical research done on what exactly constitutes the “bureaucratic experience” for citizens and what the costs of bureaucratic dysfunction are. To improve our understanding of this topic, 5 cases of Mexican citizens' encounters with public bureaucracies are used to develop the notion of “low‐trust bureaucracy”: public organisations in which access to services is unreliable and the levels of control towards both citizens and bureaucrats are excessive. This bottom‐up analysis of administrative practices contributes to our understanding of the ineffectiveness of government programmes and services, but also of how bureaucracies in developing countries amplify social inequality rather than function as a social equaliser. Furthermore, this article adds new insights to the existing understanding of administrative burdens as a result of either political tactics or mere benign neglect. The data presented here suggest that structural and intractable characteristics of the broader administrative context, such as authoritarian legacies, can produce behavioural patterns that shift bureaucratic attention away from a fair and efficient service provision.     

Remembering Vincent Ostrom: unhorsing a dominant paradigm

This essay is a memorial piece about Vincent Ostrom (September 25, 1919–June 29, 2012). I start by reviewing his academic history and then turn to Professor Ostrom’s major intellectual legacy—his effort to overturn the dominant paradigm in public administration and political science on metropolitan government reform. The three most important contributions of his work are discussed, including the introduction of public goods theory into the study of public administration and his work on quasimarkets and the Tiebout model. Three controversies or conundrums raised by his work are then discussed. Finally, the essay considers whether Professor Ostrom was ultimately successful in his effort to overthrow the traditional approach to the production and delivery of public goods at the city government level.     

John Stuart Mill's Theory of Bureaucracy within Representative Government: Balancing Competence and Participation

The relationship between bureaucracy and representative government has been a subject of concern to public administration since its inception. John Stuart Mill addressed this question in an 1861 essay, in which he explained his theory of government. Mill suggests a role for public administration that is not only legitimate, but also necessary for good government. His writings contain remarkable references to the concerns addressed in current theories of public administration. Mill worked to balance the spirit of popular government with governance by the most educated, skilled, and experienced of the nation, whether they were citizens, elected representatives, or administrative officials. This article examines Mill's theory and the contribution it makes to current public administration discussion.     

School Bureaucracy and Student Performance at the Local Level

A major debate in American education centers on the role bureaucracy plays in shaping educational performance. Proponents of school choice argue hat large educational bureaucracies have contributed to dramatic performance shortfalls in America's public schools. Other scholars view educational bureaucracies as beneficial because they manage a wide range of problems and thus make it easier for teachers to focus on the core task of teaching. This study examines these competing claims about the impact of bureaucracy on student performance using district level data from Texas public schools. The findings from several regression models reveal negative relationships between bureaucracy (measured both at the central and campus administration levels)and student performance across several different grade levels.     

The cost disease and government growth: Qualifications to Baumol

Changes in real world wage movements across sectors account for about a third of the rise in the cost of U.S. government services between 1959 and 1989, while relatively slower productivity in the public sector accounts for the remaining two-thirds. Even though it is slower, however, the productivity record still is positive even in the labor intensive government sector. Consequently Baumol argues that the public's likely future objection to necessary increases in the share of expenditures over the next 50 years will betray a fiscal illusion unless policymakers take pains to dissolve it. But slower productivity may be equally due to the structural organization. Removing public monopolies, reducing bureaucracies, and undertaking privatization in education for example, are other policy options that could radically change the productivity record. Meanwhile in his recent calculations of dramatic government expenditure increases expected in the next half century, Baumol omits reference to the marginal welfare cost of public funds, which on our estimates, will increase at least ten times to reach 1.71 by the year 2040.     

When a Career Public Servant Sues the Agency He Loves: Claude Ferguson, the Forest Service, and Off-Road Vehicles in the Hoosier National Forest

Claude Ferguson, who in his own words “met the test of his lifetime,” deviated from the norms of the U.S. Forest Service articulated by Herbert Kaufman in The Forest Ranger to became a government guerrilla against the organization he loved. This profile highlights several enduring themes: the inherent tensions between democracy and bureaucracy, the many masters of career bureaucrats, how organizational culture can both empower and constrain employees, and what it means to act responsibly, ethically, and with integrity as a public servant. In addition, this case demonstrates how the Forest Service has evolved since Kaufman's classic study. First, Kaufman depicted forest rangers as “valuing the organization more than they value[d] getting their own way,” yet this profile underscores that public servants do not check their worldviews, mores, or ethics at the door. Second, Kaufman described the Forest Service's efforts to routinize the decisions of its employees in an effort to prevent allegiances to, or co‐optation by, local populations. Yet in this Administrative Profile, Ferguson's hidden strategic tactics co‐opted local stakeholders to enlist their support for a cause he deeply felt was right and just.     

Joseph Stiglitz: The Citizen-Bureaucrat and the Limits of Legitimate Dissent

Since being forced to resign his high-ranking post at the World Bank in 2000 for publicly dissenting from neoliberal ideas, Joseph Stiglitz has become a global policy celebrity, celebrated as the “Rebel Within.” While much has been said about his neo-Keynesian policy framework, little has been done to explore the political significance of his iconic status as a renowned “citizen-bureaucrat.” Yet, Stiglitz's iconic image in many ways has had a greater political impact than his policy ideas. In a world in which government and corporate bureaucracies increasingly squeeze out alternative visions, the citizen-bureaucrat suggests that space still exists within these unwieldy bureaucracies for the independent-thinker to put forward a rebellious agenda. Through an assessment of Stiglitz's policy career, this article argues that the image of the citizen-bureaucrat is, to a large extent, an ideological fantasy that masks a more uncomfortable political reality: that the available options for the “good bureaucrat” in today's neoliberal era, far from expanding, are more narrow than ever before.     

Mr. Justice Brandeis and the Creation of the Federal Register

The creation of the Federal Register in 1935 was crucial in enhancing transparency in American national government and its accountability under law. This historic action during the troubled New Deal era established a core institutional framework that endures as the nation begins a new century and as public administration struggles with an era of new institutionalism. Drawing on archival records and interviews, this article examines the political, administrative, and legal factors that led to the Register's creation. In particular, it sheds light on the little known but pivotal role played by Justice Brandeis in an extrajudicial capacity in this process. Brandeis's actions derive, in part, from his lifelong concern for fostering government openness and ensuring accountability under law from government bureaucracy. Without his intervention, it is unlikely the Federal Register Act would have been enacted at the time and in its important institutional form.     

Managing the Welfare State: Lessons from Gustav Möller*

The administrative problems of the present Welfare State have come into focus in recent research. The basic question being raised is whether an elected government can control the bureaucracies that handle the social programmes, i.e., whether the intentions of the parliamentary majority really can be translated into action when they reach the point of administrative implementation. The central subject of this study is the legendary architect of the Swedish Welfare State, Gustav Möller, who was Minister of Social Affairs 1924-26 and 1932-51. It is argued that many of the problems highlighted in present theories of public administration were already apparent to Möller. As the minister responsible for the administrative construction of the Swedish Welfare State, he developed several strategies to cope with the problems of bureaucracy. Having lost the battle over the Social Democratic party leadership in 1946, Gustav Möller left the government in 1951. Subsequently many of his original anti-bureaucratic administrative strategies were reversed.     

Corporatism, Pluralism, and Democracy: Toward a Deliberative Theory of Bureaucratic Accountability

This essay proposes a deliberative model of bureaucratic accountability and assesses its feasibility. Conventional wisdom suggests that a deliberative theory of bureaucratic accountability has little utility outside corporatist contexts. I reject this view because recent changes in patterns of interest representation have transformed both corporatist and pluralist bureaucracies into more hospitable environments for public deliberation. Contrary to the claims of democratic corporatists, recent pluralist practices of interest representation also seem to be compatible with public deliberation. Hence, movement toward greater openness in administrative decision-making is possible from both liberal pluralist and corporatist starting points. Corporatism clearly has no monopoly on democratic deliberation.     

Public Enterprise Reforms in the United States and the People's Republic of China: A Drift toward Constitutionalization and Departmentalization of Enterprise Management

Does globalization foster administrative convergence? Is that the case with public enterprise reform in the United States and the People's Republic of China? Few analyses compare public enterprise reform in the two countries because of their vast differences in regulatory approaches, public policy, and government structure. This article contrasts how American and Chinese public enterprises are developed, defined, and managed, along with their emerging control infrastructures This the resulting strengths and weaknesses. While vast differences remain apparent between the two countries, this essay provides insights into why those gaps persist, and may even continue to grow .     

Does E‐Government Promote Accountability? A Comparative Analysis of Website Openness and Government Accountability

Under the global pressure of information technology, the adoption of web-based technologies in public administration has created a new government-and-citizen interface. However, whether e-government will unambiguously lead to a more transparent, interactive, open and hence, accountable, government remains a central question. Applying a framework of global pressure effects on bureaucratic change, this paper conducts an empirical study on website openness and accountability in fourteen countries. Even when overall accountability levels rise, the accountability gap between different national bureaucracies often remains intact as web-based technologies typically maintain or reinforce the existing practices. The question of whether e-government promotes accountability depends on what kind of bureaucracy one is referring to in the first place. In the current debate about global convergence and national divergence on the effect of globalization on public bureaucracies, the spread of e-government provides a case of convergence in practice rather than in results.     

Information, market government, and health policy: a study of health data organizations in the states.

Information is essential to the success of market-oriented policies. Information on health care costs and quality is collected and distributed by state governments through health data organizations (HDOs) to enhance competition and lower costs in the medical industry and to improve consumer choice among medical alternatives. This article examines the information collected, produced, and distributed by state health data organizations in Colorado and Pennsylvania. Findings reveal that information was not the objective determinant of choice and competition as market-oriented policy designers had hoped. Nor did market-oriented bureaucracies produce and distribute data readily accessible for public choice. Instead, information produced and distributed by these HDOs was the result of political and bureaucratic exercises that conform much more to classic interest group policymaking and captured bureaucracies than to contemporary market-oriented government ideals. The findings underscore the extraordinary difficulties facing federal-level policy designers as they contemplate introducing market-oriented health care policies on the national level.     

Competency and bureaucracy: diffusion,application and appropriate response?

Competency, a long-standing concern with the skills and capabilities of bureaucrats and bureaucracies, has recently attracted renewed attention for public service reformers and consultants. This study explores three questions about the recent fashion for competency language in public management. First, it considers whether contemporary approaches to competency have been diffused from a single source by briefly examining the history of the competency movement in three countries. Second, it analyses, on the basis of case studies drawn from the UK Department of Trade and Industry and the German Federal Economics ministry, how government departments organise competency by assembling policy teams that reflect the problem constellations for particular policy issues. Finally, it raises the issue of whether national administrations have adopted appropriate responses to competency in the light of contemporary demands placed in national bureaucracies. It concludes that there is only a limited tendency to diffusion, that departments respond to problems more by inertia than design and that the national responses offer only limited solutions to justified concerns about competency.     

Martin Luther King's Civil Disobedience and the American Covenant Tradition

Daniel J. Elazar introduced the covenant idea to political sciencein his four-volume work, The Covenant Tradition in Politics.As he showed, American government and society are indebted tocovenant ways of New England Puritans and their doctrine, "federaltheology". Puritan covenants fostered polities whose framesof government and patterns of civil order established a federalmatrix antecedent to modern American federalism. The moral orientationof covenant has also influenced modern American political thought,as evidenced by the public philosophy articulated by the Rev.Dr. Martin Luther King, Jr. during the Civil Rights Movement(1954–1968). In such works as "The Letter from the BirminghamCity Jail," King challenged his contemporaries' ideas aboutlaw and justice, Americans with an opportunity to examine moderncovenant practice.     

Locke, Hegel, and the Economy

Peter Lawler’s insightful critique of American individualism offers many important lessons, but his diagnosis of our economic situation is overly optimistic. Indeed, “big government” is more of a problem than Lawler suggests. This essay draws on two central figures of Lawler’s analysis—Locke and Hegel—to explore the problems that individualism poses for modern political economy. Although individualism is unlikely to make the regulatory state or welfare state wither away, the psychology of individualism confirms the importance of cultivating forms of recognition beyond economic life.     

The Dialectical Liberalism of Richard Hofstadter

This essay examines Richard Hofstadter’s The American Political Tradition, alongside some of his unpublished writings from the 1940s, in order to reassess his contributions to the history of American political culture and thought. After exploring some of the implications of Hofstadter’s critical analysis of mid-century liberalism, the essay then considers how we might bring his insights into the present.     

Social Equity and COVID-19: The Case of African Americans

Emerging statistics demonstrate that COVID-19 disproportionately affects African Americans. The effects of COVID-19 for this population are inextricably linked to areas of systemic oppression and disenfranchisement, which are exacerbated by COVID-19: (1) health care inequality; (2) segregation, overall health, and food insecurity; (3) underrepresentation in government and the medical profession; and (4) inequalities in participatory democracy and public engagement. Following a discussion of these issues, this essay shares early and preliminary lessons and strategies on how public administration scholars and practitioners can lead in crafting equitable responses to this global pandemic to uplift the African American community.     

Southern European Public Bureaucracies in Comparative Perspective

The public bureaucracies of Greece, Italy, Portugal and Spain may be set apart from the rest of West European bureaucracies. Until the mid-1990s, the former were distinguished from the latter by certain interrelated structural characteristics. These characteristics were extended politicisation of the top administrative ranks; enduring patronage patterns in recruitment to the public sector; uneven distribution of human resources; formalism and legalism; and, with the exception of Spain, absence of a typical European administrative elite. The characteristics were related to the type of capitalism and political development in Southern Europe. South European bureaucracies have started evolving towards decentralisation and privatisation. However, convergence with the bureaucracies of other EU member-states is an open question.