沃尔多《行政国家》及其当代意义

Waldo's the Administrative State and the Contemporary Contributions

在今天重访沃尔多的《行政国家》正当其时。沃尔多在讨论公共行政兴起的时候,间接提出并刻画了"行政国家"这一概念。他试图阐明,美国行政国家的兴起有其历史背景、现实基础和制度根源。在行政国家中,行政权力大量介入社会事务之中;奉行"科学"理念,反对先验的普遍标准或原则;庞大的行政官员(其中很多是技术官僚)成为国家的统治阶层;对三权分立、互相制衡持怀疑态度,也不再相信政治与行政二分,取而代之的是行政权力独大。行政国家的勃兴,引发公共行政在理论或学科层面的"身份危机",以及在实践层面的"宪法危机"。寻求行政国家的拯救之道、化解"宪法危机"的关键,在于复活公共行政的"法律路径",重新平衡公共行政的管理、政治和法律向度。在这方面,美国当代著名公共行政学家罗森布鲁姆做出了最重要的工作,他强调在公共行政理论和实践领域引入法治精神和行政程序法,致力于在行使行政权力、监督行政权力和限制行政权力之间建立新的平衡。"行政国家"概念虽然最先被沃尔多用于刻画美国行政权力炽盛的现象,但在行政国家普遍勃兴的今天,沃尔多和罗森布鲁姆对"行政国家"的刻画和批判无疑具有显著的域外意义和当代意义。

As a response to the 70th anniversary of the dministrative State's English publication and the first time of Chinese version published, and further response to the flaming contemporary administrative state, it is right time to revisit Waldo's the Administration State. When Waldo discussed the rise of American public administration, he indirectly characterized the concept of "administrative state". He tried to clarify that the rise of American administrative state has its historical background, reality bases, and institutional roots. The concept of administrative state carries four characteristics, the administrative power heavily involves in public affairs; public administration pursues the ideology of "science" and against universal standards or principles; large administrative officials, many of whom are technocrats, rule the country; the checks and balances system and politics-administration dichotomy are distrusted and eroded instead, the administrative power dominates the state. The rise of administrative state has caused the "identity crisis" of public administration discipline and the "constitutional crisis" at practice. The key solution to save the administrative state from "constitutional crisis" is to restore the rule of law approach in public administration and to rebalance the management, politics, and law dimensions of public administration. The famous American public administration scholar Rosenbloom who has made the most original and creative work on the rule of law approach emphasizes the introduction of the spirit of law and administrative law in public administration theory and practice, so as to achieve a new balance between implementing, supervising and limiting the administrative power. We argue that the concept of "administrative state"was developed by Waldo to characterize the American flaming administrative power, but Waldo and Rosenbloom's work have significantly contemporary contributions to other countries in today's widespread emergence of administrative state.