行政生态学视角下我国行政改革的对策建议.pdf

中国人民大学 硕士学位论文 行政生态学视角下我国行政改革的对策建议 姓名：何晶 申请学位级别：硕士 专业：行政管理 指导教师：彭和平 20070510 摘 要 诞生于上世纪六十年代的行政生态学将公共行政视为整个社会系统的一个 部分，认为社会因素、经济因素、文化传统等等社会系统的分支都与行政系统 有着密不可分的关系这就在行政学领域提出了一种新的价值观，跳出了行政 系统的内部，着眼于从行政与周围社会环境的关系角度来研究公共行政，这种 价值观对于指导我国新时期的行政改革具有重要的意义行政学家在从事研究 过程中，借用了生态学的理论与方法，将行政制度比作生态学的生命机体，而 将社会视为外部环境，来研究行政制度与社会现象的相互关系，以期对官僚制 以及其他社会制度获得更加全面地了解我们在行政改革过程中可以学习、借 鉴行政生态学的理论和方法，对我国行政改革的具体环境作全面、科学的分析， 这样就能够正确认识我们所面临的困难，建立符合未来需求的行政制度 里格斯对行政生态背景的比较分析是建构在他对社会形态划分的基础上 的他认为，人类历史上存在着三种基本社会形态，即传统农业社会、过渡社 会和现代工业社会各种社会体制在发展过程的早期阶段将被镕合，在转变阶 段将成为棱柱型的，在最后将是处在一个完全衍射的阶段。

我国现阶段还处于 一个过渡阶段，属于里格斯生态行政模型中的棱柱型社会，因此运用此模型可 以分析我国的公共行政改革，以促进国家现代化里格斯认为，影响一国公共 行政的生态环境的要素多种多样，其中最主要的有五种：经济要素、社会要素、 沟通网络、符号系统以及政治构架本文在分析棱柱型社会这五种要素的特点 和对公共行政产生的影响的基础上，对刚果、美国、墨西哥三国所代表的三种 社会生态特点进行了分析，而后，对我国的历次行政改革进行了回顾，指出了 目前我国社会存在的异质性、重叠性和形式主义的现象，并就改革的现状进行 了分析通过改革现状的内在分析，进一步探讨了影响我国公共行政改革的外 部环境，包括：政治环境、经济环境、文化环境、社会环境和国际环境得出 我国政府必须树立生态观念，进行全方位的行政改革，将影响行政行为的各类 环境因素纳入到改革的步骤考量中，并最终通过制度来落实，这样才能从根本 上克服以往改革遗留下来的问题，并最终适应全球大变革时代的社会节奏的结 论 1 他国的经验再好也不能照搬，我国的行政改革还需要建立适应国情的发展 方案，未来我国的行政改革要把握住发展面临的关键临界点，争取“黄金发展 时期”的前景。

要明确改革的发展方向：以社会主义市场经济为取向；以制度 创新为途径；以提升政府能力为核心；以实现行政管理现代化为目标坚持行 政改革的原则：必须防止和克服思想认识上的偏差，坚持正确的理论指导；必 须同政治、经济体制改革同步，整体推进，上下联动；必须与行政立法相结合， 用法律来规范改革要吸收借鉴其他国家的经验和教训，坚持行政改革的持续 性，以“常小动”换“不大动”的稳定的政治局面；提高法治水平，法治与德 治相结合；提高公民政治参与的意识，推进城乡基层政权改革；积极推进公共 服务市场化；增强行政改革的参与机制，并使之制度化；要坚持党的宗旨；采 行适当政策；扩大民主和监督，坚决遏制腐败现象在具体方案上，一是要缩 小异质性：创新行政理念；树立“依法行政”观念，从“人治”真正转向“法 治” ； 加强社会利益协调， 促进社会公平和正义 二是要消除行政机构的重叠性： 加快政府机构改革，创新政府自身的组织架构和模式，建立行为规范、功能齐 全、精干高效、运转协调的行政组织机构；以学习型政府为取向重塑行政过程； 积极培育第三部门，建立公民参与机制三是要改变形式主义：切实转变政府 职能；推行电子政务，实行行政公开；加大监督力度，推行行政问责制。

关键词：行政生态学；行政改革；对策建议 2 Abstract The ecology of public administration which is born on 1960s of last century view public administration as a part of the whole social system, it deems that as the branch of the social system, social factor, economical ingredient and cultural tradition and so on factors all has inseparable relations with the administrative system. This proposed one kind of new values in the science of administration domain, jumped out of the inner part of the administrative system, and focus on studying the public administration from the interrelation between the administration and the periphery social environment, this kind of values have the vital significance for instructing our country’s public administrative reform in the new era. The administrative scientist has borrowed the ecology spirit and its method and assimilates the administrative system with the life organism in the ecology, but regards the society as the external environment, to study the correlation between the administrative system and the social phenomenon and expects to obtain a more comprehensive understanding about the bureaucracy system and other social systems. In the process of administrative reform, we can learn and study the theory and the method of the ecology of public administration to make a scientific and comprehensive analysis about the concrete environment of our country’s administrative reform, which can help us correctly understand the difficulty that we faced and establish the administrative system which conform to the future demand. Riggs’s comparative analysis about the administrative ecology background is based on his division to the form of the society. He believed that, there exist three kind of basic form of society in the human history, namely traditional agriculture society, transition society and modern industry society. Each kind of social system in the developing process was fused in its early stage, and prismatized in the transformation stage; also, finally it will be occupied in the stage which is completely diffracted. In the present, our country is on a transitional stage, belongs to the prismatic society which is described in Riggs’s ecology administration model, 3 therefore, we can utilize this model to analyze our country’s public administration reform and promote the national modernization. Riggs thought that, the factor which affect one country’s public administrative ecology environment are many and varied, among them the main essential five ones contains: economical complication, social equation, communication network, symbol system as well as political skeleton. After analyzing this five factors’ characteristics and its influence to public administration in the prismatic society, this article carried out further analysis on the ecological characteristics of three kind of society, which is represented by Congo, America and Mexico, after that reviewed all previous public administrative reform of our country and pointed out there exist heterogeneity, overlapping, and formalism phenomenon in our present society, further, carried on the analysis on the status in quo of administrative reform. Through the intrinsic analysis about the reform status in quo, more was discussed on the external surroundings that impact our country’s public administrative reform, including: political context, economical environment, culture circumstance, so。