"政行二分"理论的偏移与复归——纪念威尔逊《行政学研究》一文发表暨公共行政学诞生120周年

威尔逊政行二分理论包括两个方面,一是政行分离,二是政行相互依存。前者既指政行功能分离,也指政行领域分离,且领域分离先于功能分离;后者既指功能相互依存,也指领域相互依存,且领域依存先于功能依存。因而,政行二分准确地说是指政行弹性分离。威尔逊之后的行政学家囿于经验,断言政行不分;不仅否定了政行分离的一面,也未深刻领会政行相依的一面。特别是以西蒙为首的决策学派,在该方面造成了恶劣的影响。政行弹性分离并非经验事实,而是政治世界的"理性事实";它源于政治与行政各自不同的本性,自在地先于现实的政治与行政。政行弹性分离是公共行政正常运行的规范前提,是公共行政学迅速发展的首要条件。因此,现实的政行关系是朝着政行弹性分离运动的。展望公共行政学发展120年后的道路,我们依然朝着威尔逊的方向前进。

Divergence and Regression of the Theory of "Dichotomy of Politics and Administration"

Dichotomy of politics and administration of Wilson contains two aspects,one is the separation of politics and administration,the other is their interdependence on each other.The former means not only the functional separation but also the separation in field between politics and administration,besides the separation in field is prior to the functional separation;and the latter means their interdependence on each other not only in function but also in field,besides the interdependence in field is prior to that in function.Consequently,dichotomy of politics and administration exactly means their elastic separation.After Wilson,the administrative experts,who were confined by their experience,asserted that politics and administration couldn't be separated.They denied the difference between politics and administration,and also hadn't understood deeply that politics and administration depend on each other.In especially the decision-making school with Simon as the leader brought very bad effects.The elastic separation of politics and administration is not experiential fact but rational fact of politics world,it comes from their difference of inherent character and is prior to the reality of politics and administration.To public administration,it is the standard premise of regulary operation,the first and most important condition of subject development.Therefore,real relationship of politics and administration moves to the direction of the elastic separation of politics and administration.Looking forward to the way after 120 years' development of public administration,we are still advancing to the way of Wilson.