“过程”与“生成”:公共行政的未来指向

Administration as “To be” and as “Becoming”: The Future Direction of Public Administration

公共行政从来不是也不应是价值中立的,政府所有规范性的主张都必然基于某种价值观念,政府在这些观念的指导下开展行动。然而现代公共行政被“制度-技术”的复合框架牢牢固定,变成了一种目标导向的“道德景观”塑形过程,这直接导致作为“生成”的公共行政成为了主流的行政形态。作为“生成”的公共行政以失去可能性为代价换取现实性,这导致行政系统在对“目标”的追逐中逐渐被异化为失去道德和生机的机器。公共行政需要从强调“生成”的传统中突围,转向建构一种作为“过程”的公共行政。作为“过程”的公共行政以行政伦理学替代行政管理学为“第一行政学”,强调行政部门的首要责任是根据情境对决策中诸种终极价值作优先性排序。中国因自身的德治仁政传统而在建构“过程”行政上具有天然的文化优势,而这种文化优势完全可以通过理论化的方式转变为学术、学科和话语优势。

Public administration has never been and should not be value-neutral.All normative claims of government are necessarily grounded on and operated on certain values.Modern public administration,however,is firmly anchored in a composite“institutional-technical”framework and has become a goal-oriented process of shaping the“moral landscape”,which has directly led to“becoming”as the dominant form of administration.Public administration as“becoming”exchanges reality for loss of possibility,which leads to the gradual alienation of the administrative system into a machine that has lost its morality and vitality in the pursuit of“goals”.The need for public administration to break away from the tradition of emphasizing“becoming”to constructing a public administration as a“to be”.Public administration as“becoming”replaces administrative ethics with administrative management as the“First Administration”,emphasizing that the primary responsibility of the administrative department is to prioritize,in context,the ultimate incommensurable values in decision-making.China has a natural cultural advantage in the construction of"to be"administration due to its own tradition of moral and benevolent governance.And this cultural advantage can be completely transformed into academic,disciplinary and discourse advantages by way of theorization.