Public administrative managerialism is a kind of government governance theory and movement developed under a specific background after the 1970s. It provides different perspectives for government management and reform and public administration research. Managerialism has many defects worthy of reflection and criticism: the bias of basic values; Superstition about market mechanism; Confusion between public and private management; Improper customer metaphor, etc. The reconstruction of public administration in 2 1 century needs to pay attention to the publicity of public administration and the interaction among government, society, market and citizens, so as not to fall into the trap of intolerance.

[Keywords:] public * * * Reflection and criticism of administrative managerialism

I. Introduction

Since1980s, public management has become the theoretical cornerstone and practical guide of government reengineering in various countries. As scholar Rosenbloom said, the new public management movement promoted by government reengineering shows its uniqueness in theory and practice, and has become a new research method that keeps pace with traditional management methods, political methods and legal methods. (Rosenbloom, 1998, page 20) also had a great influence on the development of public administration. According to Habermas' classification, scientific cognition includes three purposes, namely, empirical analysis science, historical hermeneutics science and critical orientation science. This paper aims to analyze the connotation of new public management as a theoretical proposition and practice, explore the context of its emergence, and make critical reflection.

Second, the connotation of public administration

Since1980s, a large-scale government reengineering movement has appeared in most developed countries in the west, and it has been given different names. Such as managerialism, market-based public administration, entrepreneurial government, and even names with political ideas, such as the New Right (Gray, 1993) and New Governance, although they have different names, they basically describe the same phenomenon, that is, the traditional bureaucratic system has been replaced by the new market-based governance model, and it is believed that a new paradigm is emerging in the public sector (Owen E. Then, what kind of connotation does this public sector managerialism or new public management contain? According to the definition of OECD (Organization for Economic Cooperation and Development), the similarities and differences of government reform in western countries include the following aspects:

(1) Adoption of enterprise management technology;

(2) Strengthen service and customer orientation;

(3) Introducing market mechanism and competition function into public administration system (OECD, 1990, 1993, 1995). Scholars Larson and Stuart (Ronson &; Stewart, 1994, P 14- 15) thinks that it includes: (1) treating people as customers and emphasizing the value of customers; (2) Establish a market or quasi-market competition mechanism; (3) expanding the scope of self-care for individuals and the private sector; (4) The role of the buyer must be separated from that of the supplier; (5) increase the contract or semi-contract funding; (6) Market measurement performance target; (7) Flexible wages.

Hood (199 1), a scholar, summed up seven points in particular and thought that the characteristics of new public management were:

(1) Giving up career management in the public sector means letting managers manage themselves;

(2) The goal must be clear and the performance must be measurable;

(3) Special emphasis is placed on output control, and actual results are more important than procedures; (4) Transition to decomposition. Decomposition means separating large-scale ministries by establishing small-scale policy institutions;

(5) into greater competition;

(6) Pay attention to the management behavior of the private sector;

(7) Save and use resources.

From the perspective of theory and practice, managerialism in public administration includes the following basic propositions: first, the focus of public administration research is on the results rather than the operation process; Second, in order to achieve practical results, public administration should make proper use of various market competition mechanisms to provide better products or services. At the same time, under the market mechanism, on the one hand, government agencies should obtain funds from the interaction between suppliers and demanders like enterprises, on the other hand, they should compete with other organizations; Thirdly, in line with the market orientation and the operation of market mechanism, public administration should also emphasize the concept of customer-driven; Fourth, the government should play the role of "navigator", and its main responsibility should be to ensure that all public services and public products can be provided smoothly, but it does not have to be handled by itself; Fifth, the government should promote the loosening of laws and regulations. Today's public management should change the past concept that only law is the right direction, and pay more attention to market competition, customer demand and achievement; Sixth, the public sector staff should be authorized to give full play to their creativity and put into work; Seventh, the public administration culture should be as flexible, innovative, problem-solving and entrepreneurial as possible.

Third, the historical background of public administration

Scholar Bo Park Jung Su (1990) once pointed out that the core idea of managerialism is basically an ideology that politicians believe in. Due to the change of social and economic situation, it has finally become a recognized view in society and has been popularized in practice. Indeed, the rise of managerialism is caused by many factors. Specifically, the following factors are very important: 1, the expansion of government scale and the expansion of government role, and social dissatisfaction with the government. After the Second World War, driven by the concept of welfare, the power of the government has been expanding, the scope of government functions has been expanding, and the role of the government has been diversified, especially to protect the welfare of citizens. The government intervenes in people's lives through legislative control, including economic control and protective control. In this way, on the one hand, the government must invest a lot of resources to provide public services, on the other hand, the heavy tax policy adopted to pay a lot of public expenditure also leads to the decline of economic competitiveness and public dissatisfaction. In this case, the government has been attacked more and more. As Hus said, the attack on the government comes from three aspects: one is that the government is too big and consumes too many rare resources; Second, the scope of the government, the government itself into too many activities, many activities can be provided by alternative methods; Third, the government's way of doing things is that providing services through bureaucracy will inevitably lead to mediocrity and inefficiency.

2. Economic factors and financial pressure The industrialized countries are developing in the direction of welfare state, which leads the government to bear huge financial expenditures every year, dragging down the government budget and economy, while economic recession and rising unemployment rate form political and economic instability. On the other hand, the competitive pressure brought by the trend of international economic liberalization has gradually intensified, which has caused great reform pressure to governments. How to promote domestic economic development, save government administrative costs and enhance international competitiveness has naturally become the core issue faced by governors in various countries. In this case, it will be an important strategy to think about government reform to alleviate financial and economic pressure and pursue national competitiveness.

With the development of industrialization and science and technology, many social problems such as population expansion, urbanization, social security, environmental deterioration, consumer protection, unemployment, education, health, racial discrimination, traffic and crime have emerged one after another. Old problems haven't been solved yet, and new problems keep appearing. The complexity, turbulence and pluralistic environment of public problems faced by the government lead to the increase of ungovernable government. On the other hand, in the face of increasingly complex social problems, the traditional government functions are indeed inadequate, coupled with the conservatism, passivity and irresponsibility of the bureaucratic system itself, as well as the ruthlessness, irresponsibility, bureaucracy, red tape and corruption of the bureaucratic system, just like G.E. Caiden, 1965438. Such as administrative arrogance, inefficiency, inefficiency and administrative imperialism, all of which have triggered a crisis of people's trust in the government, so that the voice of government reform is getting louder and louder, especially the voice of public services returning to society and the market is getting louder and louder, and narrowing government functions has become a trend and trend.

4. The great influence of new right theory and conservative political thought. To some extent, "managerialism" is an ideological movement. As Park Jung-soo said, managerialism is an acceptable facade for the new right to think about the country. Since 1970s and 1980s, the western countries have been ruled by conservative political parties. The political proposition of the new right criticized the social welfare state and politics prevailing in the 1960s, believing that it had many major defects. For example, the prevalence of diversification has greatly increased public expenditure. Bureaucracy prefers to expand the resources it can enjoy, leading to "budget maximization"; Public service is a monopoly mode of operation; The result of excessive government expansion threatens individual freedom and is not conducive to enterprise development and entrepreneurship; The government's measures to seek equal social justice lack legitimacy; The sharp increase in public expenditure will exclude the growth of the private sector because of borrowing. In their view, the failure of the government is more serious than the market. For the believers of the new right, better management provides a label, which can introduce the private sector into the public sector, strengthen political control, cut budgets, reduce professional autonomy, weaken civil service unions, and the semi-competitive structure will rise and drive away the inherent inefficiency of the bureaucratic system. It is in this ideology that the beliefs of supporting the market and opposing the state prevail, and it is almost an indisputable choice for the public administration to resort to the market or similar market solutions.

Fourth, the reflection and criticism of managerialism.

Since the emergence of managerialism in public administration, theorists and practitioners have different views. The scholar Hood thinks that managerialism is a kind of immaterial connotation? Quot exaggeration trick ",in fact, has not changed anything. According to his point of view, managerialism is harmful to public services, and at the same time, it has little effect on the central theme of reducing costs. It holds that managerialism is a kind of goods cult (hood, 199 1). In the eyes of others, managerialism represents a new paradigm and the future of public administration and state governance. I believe that managerialism in public administration, like other theories and theories of public administration, represents an effort of human beings to seek good governance; To some extent, it reflects the reasonable expectation of society and social citizens for efficient government services; Many ideas and concepts of managerialism are very enlightening. However, managerialism in public administration is not so much a paradigm shift as another way to solve difficult problems. Excessive superstition of managerialism is also a kind of "fatal conceit" From the perspective of reflection and criticism, the managerialism of public administration also has many defects. In my opinion, this defect is mainly manifested in the following aspects:

1. The theoretical basis of biased managerial view of human nature mainly comes from public choice theory, principal-agent theory, transaction cost theory and neoclassical economics theory. Managerialism inherits the hypothesis of human nature in neoclassical economics, and holds that (1) the motivation of rational actors is self-interest; (2) Rational actors are opportunistic, fraudulent, selfish, lazy and good at using others; (3) Because of this assumption, rational actors cannot be trusted. However, there may be several blind spots when managerialism refers to the hypothesis of human nature in neoclassical economics. First, it ignores the adjustment of cultural factors to human nature. Human egoism may be more prominent in the following situations: atomized individuals without any social interaction; When there is a serious conflict between group interests and individual interests; Short-term interaction; It involves one's own vital interests and can be quantified. In addition, cultural factors such as compatriots' love, reciprocity, mutual trust, tolerance, consideration and altruism will also regulate people's behavior; In addition, many theories also show that human nature is complex and people's needs are diversified; More importantly, what will happen when we accept the hypothesis of human smuggling theory? Quot The phenomenon of "learning without observing", that is, we lose our moral sensitivity to selfishness and insensitivity, and gradually accept the attitude of "selfishness does no harm to others", while ignoring the importance of promoting goodness, will also lead to the crisis of public interests and public ethics. Because theory can not only reflect facts, but also lead people to theoretical assumptions. Under this assumption of human nature, public service ethics has lost its value and foundation. In fact, good public service ethics is very important.

2. The deviation of public administration value and the loss of public administration legitimacy in the process of democratic governance caused by managerialism. Managerialism holds that the basic value of government governance lies in "three E's": economy, efficiency and benefit, that is, emphasizing enterprise value priority and instrumental rationality. However, in fact, public administration has the characteristics of pursuing or demanding multiple values, and sometimes even conflicts. In essence, public administration is based on democratic constitutionalism and emphasizes the pursuit of multiple values such as people's sovereignty, civil rights, human dignity, social justice, public interest and social responsibility. Too much emphasis on the pursuit of efficiency and instrumental rationality makes it impossible for public administration to reflect on the fundamental value and purpose of public administration and public services and dwarf them into tools for implementation and management. It is not only unable to assume the responsibility of public administration to defend democratic and political values, but also unable to realize the information and mission of improving citizens' moral life. Roberts Denhardt (1993), an administrative scientist, believes that instrumental rationality oriented by efficiency will only lead people to pay attention to the means to achieve the set goals, but ignore the attention to the goals themselves; That is to say, all kinds of behaviors under instrumental rationality will make administrative work farther and farther away from the embodiment of social values, but just haggle over every ounce to reduce administrative costs and become tools in the process of official business, thus completely losing the "moral content" as the administrative system behavior itself. Scholars Peron and Geerli (1992, 13 1- 132) have pointed out that there is a conflict between market-oriented public administration or managerialism and democratic political values, that is, autonomy. The conflict between autonomy and accountability, personal vision and citizen participation, confidentiality and openness, adventure and public welfare management is indeed reasonable. The author also agrees with Terry (1998) that managerialism established through public choice theory and agency theory is useless to "democratic value" and cannot stand further study. The legitimacy or legitimacy of modern government must be based on the value premise of being able to take responsibility and practice a democratic society.

3. The basic tenets of the market and the improper worship of market functions are based on methodological individualism, self-interest and rational assumptions. Deductive reasoning and econometric models prove that the market is the most efficient system. As for the government, because the people's ownership is scattered and inalienable, there is no incentive to supervise it, and there is no market mechanism to check it, so self-interested officials can ignore public welfare and concentrate on pursuing personal interests, so the government is inefficient. Therefore, it is advocated that public goods and services should be provided in a more efficient market, reducing the functions of the government and making the government smaller and more beautiful. However, this market fundamentalism itself is naive and illogical. First of all, excessive worship of the market ignores the defects of the market. In fact, economists are not blunt about the limitations of the market economy. Welfare economics recognizes market failure. The government intervenes in the market with fiscal policy and public policy, and establishes a bureaucratic system to implement these policies in order to save consumers' rights and correct the problems caused by market failure. This is the purpose of the government. Recently, organizational economics has understood the theoretical limitations of a perfectly competitive market from the perspective of transaction costs, and indirectly demonstrated the special relationship between the market and government power. From the establishment of the authority of contract laws and regulations, to the establishment of property rights, and then to various regulatory policies, it shows that the establishment of market authority requires government intervention. Second, the basic market theory also ignores the market incentives of public sector competition and perfect competition. What is Gou's six miscellaneous interpretations? Talk about pah? Yu? What is the local phagocytosis system of malaria? Hey? Kono? Return to seek evil refers to plutonium? Individuality), the government's output (policy or service) is public property, which is inseparable and mutually exclusive; The randomness brought by huge economies of scale; Government policies are mandatory; The service is exclusive; Barriers to entry; There is no price system and so on. Because of this, the introduction of competition mechanism in the public sector is greatly restricted. That is to say, the limitation of introducing market function into the public sector is the limitation of the market function itself, and we can't throw back the work that the market can't operate and hand it over to the public sector for market management. Third, from a practical point of view, there are two main ways to market the public sector. One is privatization; Second, the effectiveness of outsourcing is still an uncertain issue. "In a competitive market, private companies are usually more efficient than government systems, but it is unrealistic to infer that private organizations without competition and market testing will bring efficiency" (Dohhue, 1989, p. 222). In fact, the marketization of the public sector provides hope, but it also provides many mistakes, such as the loss of public welfare, the evasion of clever use, rent-seeking, privilege and corruption. Managerialism's superstition of the market is obviously inappropriate. In his book The Crisis of Global Capitalism, financial tycoon Soros believes that "the basic tenets of the market misinterpret the operation mode of the market, making the market play an excessively important role, which inadvertently poses a danger to the open society", and "the dissatisfaction with politics promotes the basic tenets of the market, and the rise of the basic tenets of the market in turn leads to political failure". One of the biggest defects of global capitalism is that it allows market mechanisms and profit motives to penetrate into the scope of activities where subsidies should not have appeared. "We should think deeply. As Blencke said: "The invisible hand of the free market, although its power is beyond doubt, is still not enough to ensure the realization of many social goals involving human happiness and making human optimistic and progressive" (Blencke, Chinese translation in 2000, p. 5).

4. Self-deconstruction of learning from the private sector and confusion between public and private management. One of the main assumptions of public administration managerialism is that there is no difference between public sector management and private sector management, and there is a general management that spans public and private scenarios. Whether you are a manager of a government agency or a private organization, you need similar management knowledge, skills, ideas and tools to help the same functions (such as planning, decision-making, organization, leadership, communication and control) to produce and provide goods and services effectively for a long time. Quot Enterprise-oriented government has almost become the spiritual pillar of government reengineering, aiming at comprehensively introducing the values, culture, structure, process and technology of the private sector to transform the government and deconstruct itself. We should admit that there are similarities between public sector and private sector management, and management knowledge, skills and tools can also be used for reference. However, there are essential differences between public management and private management. As early as 1948, Waldo, a master of administrative science, criticized that this universal principle of not distinguishing between public and private ignored the essence of public administration, that is, the essence of public administration (Waldo,1948: p.159-191). Otto and Heidi (Ott, Hyde, 199 1) also pointed out that enterprise management and public administration have different ideologies and different values. Rosenbloom, 1998) also analyzes the differences between them from the aspects of national sovereignty, public interests and legal rules. In my opinion, there are great differences between public management and private management, which are manifested in constitutionalism and market, public welfare and private interests, rule of law and freedom of contract, social justice and efficiency profit. In short, public administration is essentially a process based on democratic constitutionalism. Through this process, the government integrates social resources, implements the basic concept of democratic governance, and embodies public interests. Confusing public administration with private administration just loses its due role in democratic governance and its practical significance.

5. Inappropriate "customer" is a metaphor of managerialism in public administration, which compares the importance of customers to enterprises to the relationship between people and the government. Therefore, customer satisfaction is emphasized as the goal of government management, and the concept of customer orientation will make service providers directly responsible for customers; Customers choose to provide services to eliminate improper interference from political factors; According to different objects, provide people with more choices; Customer-oriented output can better meet the needs of the public and achieve fairness (Osborne and Gaebler,1992:181-186). However, the customer-oriented public service itself is a questionable and inappropriate metaphor: first, the role of citizens in democratic governance is complex, and citizens are the recipients of public services, so the government needs to provide services from this perspective; Citizens are also partners or participants in public services, and their behavior also affects the performance of public services; Citizens are also supervisors of public services and have the responsibility to supervise the operation of the government; Similarly, citizens are also the bearers of tax obligations. Comparing the object of government services to customers may not fully understand the role of citizens, which makes the relationship between citizens and the government imperfect and their roles disordered. As G. Federickson, 1997) said, the people are the "masters" of the government, not the customers. The concept of "master" has initiative, which can determine what the government's agenda is and is more in line with the people's status. Second, although the original intention of customer first is to improve the quality of public services, which is good, there are also many difficulties that must be solved: for example, it is difficult to meet multiple goals, because in an open society, people's demand for government services is extensive, and even multiple goals often conflict, so it is impossible for the government to meet every customer with limited resources; It is difficult to meet the needs of customers, and every rule of the government is considered from the perspective of overall interests, so it is difficult to meet the needs of every customer; Third, the government is not only a service provider, but also a regulator. Many times, the government must restrain certain needs of citizens to ensure the existence of public interests. In fact, all citizens' demands are legal, and the government only meets citizens' legitimate expectations. Fourth, the monopoly or monopoly of government services, due to the lack of competitive pressure, people's demand elasticity is large, whether it is regarded as customers or owners, it is difficult to give play to the advantages of customer orientation. In fact, the interactive relationship between the government and the people should not be unilaterally manipulated or too passive. The real solution lies in establishing a democratic dialogue mechanism so that everyone can share their rights and fulfill their obligations.

Fifth, the theory and practice of public administration reconstruction.

It should be admitted that the managerialism of public administration provides a perspective for the theory and practice of public administration. In any case, for public administration, a multi-perspective perspective is beneficial. However, as some scholars have said, whether managerialism is a paradigm shift of public administration is still a questionable issue. Jong (J 1994), an administrative scholar, believes that the effect of the model of administrative science cannot be measured by its published empirical works, but must be measured by? Quot Conceptual Framework "(conceptual framework) and applied to effectively solve the problem is a reasonable judgment. When the new paradigm replaces the old paradigm, it must show the ability of the new paradigm to effectively solve problems and puzzles. Obviously, it is too early to talk about managerialism as a model, and its supporters may be too confident in the face of facts. In addition, regarding it as a model, it is easy to regard the enterprise government of "market mechanism", "small but capable", "customer-oriented" and "efficiency first" as an absolute belief, which constitutes an improper "market centralism" and distorts the characteristics of public administration. We should admit that every era has its own government governance, which should develop with the changes of politics, economy, culture and technology. Similarly, the theory and doctrine of public administration should also develop with the development of the times. In this era of great social change, does the theory of public administration need to be constantly emphasized? ⒀ ⒄ ⒄ ⒄ ⒄? Complain Residual surname? Are you greedy? Traces of this star source? Take a last name? Are you stupid? Huang Lantian? Hey? ?⒑áááááááááááááááááááááááááááá

1, public administration should be regarded more as a process of democratic state governance than just a management process;

2. Public administration should recognize the legitimacy of the government in the process of national governance and avoid overemphasizing the market, which may lead to a "hollow country";

3. Public administration should pay attention to its publicity and avoid the loss of public spirit;

4. Public administration should think about problems from the perspective of interaction between government and society, public sector and private sector, and government and citizens to avoid polarized thinking;

5. Public administration should transcend the ideology of "Left" and "Right" and develop a more neutral overall view;

6. Public administration must learn from enterprises, but "self-deconstruction" even runs counter to the state and is unnecessary. More importantly, while learning from enterprises, we should consider the particularity of the situation;

7. Public administration should not downplay the moral requirements of officials, because this is a necessary condition to achieve good governance;

8. Public administration should not only attach importance to public relations, but also attach importance to management knowledge and strategies; 9. The research of public administration should adopt the way of interdisciplinary integration to avoid the blind spots brought by a single perspective. More than 2,000 years ago, Lao Tzu, the Great Sage of China, once said: "All people in the world know that beauty is beauty and evil is evil; Everyone knows that good is good and bad is bad. Therefore, whether there is mutual existence, difficulty and complementarity, different lengths, inclined competition, harmonious sound and sound, and follow each other. This is a question of the inaction of saints. Do you say it? quot。 Some people also said that "if you don't see yourself clearly, you won't show your strength, you won't cut your merits, and you won't flatter yourself." "For the theory and practice of public administration, this is a wise saying.

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