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结束语：政府改革――永恒的主题
归纳起来，莱特(Paul C. Light)在《改革的浪潮：让政府工作,1945-1995》(1997)一书中，总结了改革的四大浪潮：1 科学管理，强调严格的等级制、分工、清楚的命令链； 2 向浪费宣战，重点是监督员、审计员、核对员、评审员；3 警惕的眼睛，倡导阳光、公开性、透明度；4 解放管理，呼吁让管理者去管理。
财政紧缩和业绩改善只是政府面临的诸多压力的一部分。进入二十世纪，公众对政府的信心在下降，这或许是政治家们不得不反复进行政府改革的主要原因。克林顿总统上任3个月就宣布了他的改革计划，于1993年成立了由副总统戈尔挂帅的“美国业绩评论委员会”(NPR)。当我们回眸二十世纪，就不难发现无论是1910，1937，1949，1972，1982，还是1993的政府改革，都有一个共同的假设：即美国联邦政府的机能失调、组织涣散、业绩平平――不能让公众满意。让我们看看下面两段“改革序曲”：
今天，关于美国政府我们必须说什么呢？宽泛地讲，我们发现美国政府目前的行政部门效果受到抑制┅ ┅行政部门的工作组织得很糟糕；管理机构薄弱而且方法陈旧，公共服务未能有杰出能力和品格的男女参与，财政与审计制度不适当。
总的来说，政府的问题不是政府中的工作人员┅ ┅不，无效的原因不是人员或金钱。主要的问题是政府机器┅ ┅在我国历史上的这一时刻，多数美国人的结论是政府业绩不佳。政府承诺不少，但未能提供它所承诺的服务。在我看来，最大的危险是：对政府短暂的幻灭将转化为更为深刻和持久的信念危机。
具有讽刺意味的是，这两段看上去似乎相似的序言发生在不同的历史时期。第一段是1932年布郎诺委员会(Brown Commission)报告的序言，第二段是1972年尼克松总统时期阿息委员会(Ash Council)的开场白。
克林顿总统执政期间，美国业绩评论委员会(NPR)制定的指南有：
l 裁减不必要的开支并精简规章制度
l 为公众提供如顾客一样的服务
l 通过减少行政规则授权给雇员
l 通过减少上级命令和给基层灵活性以帮助社区
l 用激励和顾客服务评估来培育卓越的公共服务
1883年彭德尔顿法案创立了美国公务员委员会。公务员制度的建立以及城市膨胀的需求催生了美国的公共行政学。1887年，威尔逊提出了创立独立的行政学学科的构想。随后，古德诺于1900年谈到行政学与政治学的分离。再之后，泰勒开始了科学管理的研究。30年代的罗斯福新政，尤其是布郎诺报告直接诱发了政府部门的膨胀和改革┅1993年至2000年执政的克林顿仍旧在重塑政府。一次次改革，一次次不同的主题。变化的是内容，不变的是要改变、要改革的努力。一百多年来，似乎历届美国总统都热衷于变革。
改革政府并非美国的独有现象。无论是东方还是西方，无论是北半球还是南半球，无论是工业发达国家、发展中国家还是前苏联或东欧转轨国家，在二十世纪末都汹涌着改革的浪潮。无论是源于财政危机、管理危机或是信仰危机，出路皆只有一条，那就是不断的改革。改革政府不仅是我们时代的主旋律，也必将是未来政府所要面临的长期挑战。
作者简介：张梦中为美国国家公共生产力中心研究员、锡拉丘兹大学麦克斯韦尔学院公共行政系博士研究生。
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1 作者感谢下列教授在《美国公共行政学说史》及相关课程所给予笔者的指导和帮助：霍哲教授(Marc Holzer)、达布里克教授(Melvin Dubnick)、威克(女)教授(Marcia Whicker)、梅戈特(女)教授(Astrid Merget)、英格拉姆(女)教授(Patricia Ingraham)、布雷思莱德教授(Stuart Bretschneider)、斯特劳思曼教授(Jeffrey Straussman)。
中文参考文献
薄贵利， “中国行政学：问题、挑战与对策” 《中国行政管理》 1998年12月。
丁煌, 西方行政学说史 武汉大学出版社1999
张梦中，“2000年美国行政学界的领导人――访美国行政学会副会长马克·霍哲教授” 《中国行政管理》
1998年9月。
张梦中， 美国联邦政府改革剖析《中国行政管理》 1999年6月。
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