官僚制的价值与限度——兼论我国公共行政的模式选择

官僚制作为一种理性的和有效的管理体制,既迎合了资本主义的发展需要,也适应了工业社会的时代要求。可以说,官僚制本身有其合理性部分。但工业时代发展起来的官僚体制本身也存在着某些不可规避的缺陷,而且与当今西方后工业社会的全新要求相左。基于此,我国行政改革的总体思路,应是在进一步强化现代官僚制的理性精神和法理权威的基础上,结合我国的行政实践,不断对官僚制进行扬弃和完善。     

Working with Stories: Street-Level Bureaucrats and Their Work with Individuals with Psychiatric Disability Exposed to Interpersonal Violence

ABSTRACT

The focus of our attention is the meeting between street-level bureaucrats and individuals with psychiatric disability exposed to interpersonal violence. Based on 11 interviews, we illustrate how stories are understood, used, and made meaningful to the street-level bureaucrat. The contribution of this article is first of all that of being a framework, from a storytelling point of view, for the work and organizational experiences of street-level bureaucrats. Second, by paying attention to the story part of these relationships, we can better understand the situation of individuals with psychiatric disability exposed to interpersonal violence given their interaction with different street-level bureaucrats.     

Authenticity or skill-oriented individualism,neutrality or managerialism: diversity officers as modern public officials

ABSTRACT

Diversity has become a new buzzword in European cities. Newly introduced diversity policies have replaced previous multicultural policies with an approach that acknowledges difference in a more general sense. Drawing on in-depth fieldwork in diversity departments in Amsterdam, Antwerp and Leeds, this article investigates how the introduction of diversity policy impacted on the recruitment and the self-representations of public officials in newly created diversity departments. Despite a proclaimed move away from recognising minority-group specificities, many officials conceive their immigrant origin as a central element of their profiles. This continuation of a multicultural logic is interpreted as misunderstanding or resistance on the part of those meant to implement these policies, indicating agency of contemporary bureaucrats as well as creative space within bureaucracies. In order to place the shift from multicultural to diversity policy in the context of welfare state transformation and neoliberalism, I assess whether diversity officers endorse diversity policies in conjunction with New Public Management policies. However, I do not find an unequivocal promotion of both policies and my study thus does not confirm the common association of diversity policies with neoliberalism.     

Frontline implementation of welfare conditionality in Norway: A maternalistic practice

Welfare conditionality is both ambitious and ambiguous for the frontline workers who put policy into practice. Since January 2017, the Norwegian frontline service should require social assistance benefit recipients under the age of 30 to participate in some sort of work-related activation, so-called mandatory activation. Drawing on qualitative interviews with frontline workers at local offices in the Norwegian Public Welfare Service (NAV), we investigate how the requirement is implemented in a context of a professionalised social welfare service. Mandatory activation is arguably a paternalistic measure. Drawing on Bernardo Zacka's concept of moral dispositions and Laura Specker Sullivan's concepts of maternalism, our findings indicate that at the frontline, mandatory activation policies are implemented by maternalistic decision making, emphasising the interpersonal relation between trained caseworkers and clients. The caseworkers use their discretionary powers in the implementation of conditionality and sanctions by emphasising care and support as embedded in the strict rules.     

Access to social services as a rite of integration: Power,rights, and identity

Access to social services is a multifaceted and multifactorial process, involving social policy lines, services organization, and professional front line practices. It appears to have a crucial role in how personal social services work: depending on the way the process is handled, access to social services could provide a bridge to an inclusive and solidarizing community or worsen discrimination and marginalization. Many underline how studying the actual encounters between citizens and practitioners can provide a privileged site to highlight the interconnections between the abovementioned factors. This is the focus of our research that explored access in a specific Italian region using a case study strategy. After a pilot study, the main points of access to social services were identified, and three units were selected as best examples of different approaches. The three units were explored using mainly qualitative methods inspired by ethnography. We were able to gain in depth understanding of three cultural approaches to access, defined as the “ethical duty,” the “good organization,” and the “professional approach” and reach an in‐depth understanding of their impact on access. There is a vast literature on the power of street‐level bureaucrats, seen as similar to gatekeepers. However, our research suggests that specific organizational cultures also play an important part: different organizational cultures may impact the implementation of local social policy, the organizational procedures, and social workers' practices.     

基层信访治理中的“包保责任制” 实践逻辑与现实困境 以鄂中桥镇为例

本文以桥镇为个案,运用国家、基层政权和农民博弈关系的三层分析框架,阐释了乡村基层信访治理中“包保责任制”的实践逻辑和现实困境。研究发现,尽管“包保责任制”能够强化包保责任人的责任意识,并在一定程度上缓解信访治理工作难题,但监控环境与空间隔离、监控技术与社会基础、监控强度与道义压力这三大矛盾使得这一制度的运行陷入困境,滋生了越来越多与制度设计初衷相悖的“目标替代”行为。在此基础上,本文阐释了中国科层制运作的三大矛盾,即理性科层制与非理性运作的矛盾、专业化与综合性的矛盾、常规运作与非常规任务的矛盾,并给出了相应的理论解释。本研究强调,在中国基层权力运作中,长期而广泛存在的名实分离的矛盾现象,不仅仅是科层体制内部各行动主体博弈的结果,也不纯粹是一个组织激励问题,而是由科层体制与乡村社会的合力所催生。由此,在推进基层政权现代化建设进程中,就不能局限于制度建设层面,还要考虑是否具备支撑现代基层政权的社会基础和制度环境。     

论清代涉藏刑案处理中的“恩威并济”政策

恩威并济是清王朝藏区施政的重要方针,在处理涉藏刑事案件过程中也是如此。在整个清王朝,恩威的投放并非等量齐观,而是随着形势及王朝的统治力而有所侧重,体现出威以明恩,恩以示威,恩威不能并济,恩威不能实行等特点。这与王朝实力强弱不无关系,也受到官僚政治的不良影响。从涉藏刑案处理的整体看,恩威并济对于案件的解决,以及安定民族地方都起到了积极作用。     

新公共管理理论及实践的再认识

上世纪80年代兴起于西方国家并席卷全球的政府改革运动统称为新公共管理。这场运动引起了极大反响并诞生了一种新的政府管理模式,取代了传统官僚制。当前我国正由计划经济向社会主义市场经济转变,面临行政改革和政府职能转变的艰巨任务。新公共管理理论及实践为我国行政改革提供了新思路。全面把握新公共管理理论和实践,理性认识其内在缺陷,结合我国特殊背景吸收其合理因素,对于推进我国行政改革具有积极意义。     

内部行政问责的合理性基础及制度完善

内部行政问责作为一种从行政系统内部对行政权力进行自我监督、自我制约的机制,对于我国建设法治政府、责任政府具有重要的意义。我国行政问责制的立法和实践取得了一定进展,但现有理论主张外部主体的问责还存在不足之处,无法全面彻底对行政权力进行监督制约。为此必须从新的视角探求我国内部行政问责的合理性基础,同时应从行政机关内部加强行政监察问责、完善审计问责、加快行政伦理立法三个方面发展和完善内部行政问责制度。     

福佬人论略(上)

在我国汉族南方诸族群中的“福佬人”,其“福佬”的名称系由历史上的“福建夷獠”转化而来。六朝永嘉之乱、侯景丧乱,使大批中原难民辗转流入福建和广东东北部地区,开了蛮汉交流的先河;唐初闽南粤东地区发生的“陈元光平蛮”,促进了福佬先民的酝酿;隋唐时期泉州“市井十洲人”的出现,及由泉州土著与中原江淮移民两种语言融汇而成的泉州方言的基本形成,则意识着福佬族群已基本孕育成熟。