论政府对公共舆论的管理的外文翻译Word文件下载.doc

论政府对公共舆论的管理的外文翻译Word文件下载.doc

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PeterAucoin

DalhousieUniversity

Halifax,Canada

peter.aucoin@dal.ca

Conferenceon‘NewPublicManagementandtheQualityofGovernment’,

SOGandtheQualityofGovernmentInstitute,

UniversityofGothenburg

Sweden

13-15November2008

AtensionbetweenNewPublicManagement（NPM）andgoodgovernance,includinggoodpublicadministration,haslongbeenassumedbythosewhoregardthestructuresandpracticesadvocatedandbroughtaboutbyNPMasdepartingfromtheprinciplesandnormsofgoodgovernancethatunderpinnedtraditionalpublicadministration（Savoie1994）.Theconcernhasnotabated（Savoie2008）.

Asthisdynamichasplayedoutoverthepastthreedecades,however,thereemergedanevenmoresignificantchallengenotonlytothetraditionalstructures,practicesandvaluesoftheprofessional,non-partisanpublicservicebutalsotothosereformsintroducedbyNPMthathavegainedwide,ifnotuniversal,acceptanceaspositivedevelopmentinpublicadministration.ThischallengeiswhatIcallNewPoliticalGovernance（NPG）.ItisNPG,andnotNPM,Iargue,thatconstitutestheprincipalthreattogoodgovernance,includinggoodpublicadministration,andthustheQualityofGovernment（QoG）asdefinedbyRothsteinandTeorell（2008）.Itisathreattotheextentthatpartisansingovernment,sometimesovertly,mostlycovertly,seektouseandoverridethepublicservice–animpartialinstitutionofgovernment–tobettersecuretheirpartisanadvantage（Campbell2007;

MacDermott2008a,2008b）.Insodoing,thesegovernorsengageinapoliticizationofthepublicserviceanditsadministrationofpublicbusinessthatconstitutesaformofpoliticalcorruptionthatcannotbutunderminegoodgovernance.NPMisnotacauseofthispoliticization,Iargue,butitisaninterveningfactorinsofarasNPMreforms,amongotherreformsofthelastthreedecades,havehadtheeffectofpubliclyexposingthepublicserviceinwaysthathavemadeitmorevulnerabletopoliticalpressuresonthepartofthepoliticalexecutive.

IexaminethisphenomenonbylookingprimarilyatthecaseofCanada,butwithanumberofcomparativeWestminsterreferences.Iconsiderthephenomenontobeaninternationalone,affectingmost,ifnotall,Westerndemocracies.Thepressuresoutlinedbelowarevirtuallythesameeverywhere.Theresponsesvarysomewhatbecauseofpoliticalleadershipandtheinstitutionaldifferencesbetweensystems,evenintheWestminstersystems.Thephenomenonmustalsobeviewedinthecontextoftime,givenboththeemergenceofthepressuresthatledtoNPMinthefirstinstance,asanewmanagement-focusedapproachtopublicadministration,andtheemergenceofthedifferentpressuresthatnowcontributetoNPG,asapoliticizedapproachtogovernancewithimportantimplicationsforpublicadministration,andespeciallyforimpartiality,performanceandaccountability.

NewPublicManagementintheCanadianContext

Sincetheearly1980s,NPMhastakenseveraldifferentformsinvariousjurisdictions.Adoptingprivate-sectormanagementpracticeswasseenbysomeasapart,evenifaminorpart,ofthebroaderneo-conservative/neo-liberalpoliticaleconomymovementthatdemandedwholesaleprivatizationofgovernmententerprisesandpublicservices,extensivederegulationofprivateenterprises,andsignificantreductionsinpublicspending–‘rollingbackthestate’,asitwasputaattheoutset（Hood1991）.Bysomeaccounts,almosteverythingthatchangedoverthepastquarterofacenturyisattributedtoNPM.Invirtuallyeveryjurisdiction,nonetheless,NPM,aspublicmanagementreform,wasatleastoriginallyaboutachievinggreatereconomyandefficiencyinthemanagementofpublicresourcesingovernmentoperationsandinthedeliveryofpublicservices（Pollitt1990）.Thefocus,inshort,wason‘management’.Achievinggreatereconomyintheuseofpublicresourceswasattheforefrontofconcerns,giventhefiscalandbudgetarysituationsfacingallgovernmentsinthe1970s,andmanagerialefficiencywasnotfarbehind,givenassumptionsabouttheimpoverishedqualityofmanagementinpublicserviceseverywhere.

Bytheturnofthecentury,moreover,NPM,asimprovedpublicmanagementinthislimitedsense,waswellembeddedinalmostallgovernments,atleastasthenorm（althoughitwasnotalwaysoreverywherereferredtoasNPM）.Thismeantincreasedmanagerialauthority,discretionandflexibility:

•formanagingpublicresources（financialandhuman）;

•formanagingpublic-servicedeliverysystems;

and,

•forcollaboratingwithotherpublic-sectoragenciesaswellaswithprivatesector

agenciesintacklinghorizontal–multi-organizationaland/ormultisectoral

–issues.

Thisincreasedmanagerialauthority,flexibilityanddiscretionwas,insome