5巴纳德认为，行政人员的首要能力是处理冲突性的伦理规范——法律的，技术的，私人的，专业的组织的规范——的能力；行政职位越高，对行政人正视和恰当处理多重价值冲突的能力的要求就越高。Cheater I·Barnard. The Functions of the Executive．Cambridge, Mass.: Harvard University Press. 1938.P272．
10Dwight Waldo. The relationship between ethics and public administration. In Richard J. Stillman Ⅱ Public Administration: concept and case. Boston, New York: Houghton Mifflin Company, 2000.
