美国市经理制简析
摘要
本文对美国的市政体制中的市经理制进行了简要分析,并试图从中挖掘有益的经验和启示。文章一共分为五个部分:
第一部分市经理制的内涵。介绍什么是市经理制,市经理制作为一种新型的城市管理体制,如何运行等;
第二部分市经理制的产生的历史背景。全面地梳理市经理制作为一种市政管理体制产生和发展的脉络;
第三部分市经理制的运行机制。主要分析市经理制存在的环境以及运行过程;
第四部分市经理制的综合分析。主要从正反两个方面揭示市经理制的特点;
第五部分启示和借鉴。主要阐述市经理制带给中国的经验和启示。
Three municipal systems are mainly being used by the Unite States currently, namely: Mayor and Parliamentary System, City Committee and City Manager System. All those three systems were set up in the wave of municipal reforms in the late 19th and early 20th centuries. During the process of development, the main form of Mayor and Parliamentary System had been transited from the traditional type of“weak major”to the one of“strong mayor”. Although this system played a positive part in the early period of the founding of the America, many new problems which need to be solved urgently appear in the city administration, along with the fast development of the American cities and the rapid expansion of its population.
Facing the urban rising problems and the expansion of city government functions, the“weak mayor system”has shown the inefficiency and incompetence. In order to change this situation, to meet the requirements of reformists, the local government expand the powers of the mayor and transferred the executive power from the parliamentary to the mayor, conferred him with financial budgeting power, the executive power, the power of appointing the municipal officials and the right of vote, then the“weak mayor”system has been transited to the“strong mayor system;
For the reason that Committee System has advantages like the open government affairs, multi-party elections, and the mutual balance between committees which avoiding the danger of the hidden power abuse, it was popular in middle-sized and small cities in America, especially in small cities, but with the ceaseless expansion of the modern city scale and the more and more complicated urban affairs, the committee system as an emergency system can not satisfy the needs of the fast-paced development of the modern cities, and gradually shows some flaws, thereupon it started to decline soon, it was currently carried out in few small towns. The City Manager System benefited the strengths of Mayor and Parliamentary System and adopted the concept of company management, so it fully adapted the rapid development form, and made great progresses, becoming to be the most prevailed municipal management system.
At present, different places adopt different municipal system according to the respective scale and character, hereinto, the city manager system are being adopted by more and more cities, and becomes to be the extensively-used system in America for its scientific administration and the concept of the experts governing the city.
This paper is divided into five parts, separately introducing the main content of manager system of American cities, its historical origins, its operation mechanism, the comprehensive characters and its revelation. The first part briefly concerns about the characters of city manager system as a scientific city administration system, it shows people a clear outline of the whole, and then make people understand the connotation of the city manager system. On the basis of this, the second and third part of the paper begin analyzing the three city administration systems of America in late 19th and early 20th centuries, expound the origin, developments and operating characters of this system at large, and analyses the background of its establishment in details, pointing out clearly that the city manager system was established under the conditions and bases of the followings like the great development of progressive movements, the appearance of the concept of public management, the hastening urbanization, and the popularization of the company administration concept. However, any system which can develop for long not only depends on its self-perfecting process, but also the guarantee of certain supervision mechanism and law system. Basing on this , the author analyses this mechanism comprehensively in the forth part of the paper, and concludes that the major factor of the steady development of American city manager system is that the democratic tradition with highly local self-government, which determines the enthusiasm of joining in the municipal management and decision-making, then the strong system of mass supervision is formed, and it prevents the political and administration mechanism corruption to appear, it helps increase efficiency meanwhile ensuring the social justice. Furthermore, the Unite States as a highly regulated country, the law is put on a position of unchallengeable supremacy. The local government carries out the policy that all the decisions are supposed to pass the hearing testimony and all the affairs should be handled according to the law procedure in order to ensure the social justice. Therefore, there is no officer who can make decisions by himself in the local government under this kind of municipal system, ensuring the system develops healthily.
Since the city manager system came into being, it had been ceaselessly developing. The number of city adopting the city manager system is increasing. During the developing process, it learns and benefits from the reasonable and beneficial parts of other theories and administration system to perfect itself, to fit for the administration characters of the modern urbanization. To absorb the academic“nutrition”from the research achievements helps us broaden our minds, so in the last part of this paper, the author concludes that the fundamental reason of which keeps the city manager system unfailing is the implement of the following three principles: the first one is the municipal administration system become to be operated like enterprise.
Among the American cities of which adopting the parliamentary manager system, the governments are constructed according to the modern enterprise pattern, and the second principle is the design of American modern government always works to deal with the relation between democracy and over-concentration of power; The third one is that the relation between the system of the government and the efficiency.
The municipal system of America is always designed and arranged with the aim of chasing the highest efficiency, and this is the major factor for a system to be accepted by people or not.Sincet the city manager system was established, the administrative efficiency and ability had been developed by implementing those three principles above. Then more and more people recognize it.
In the developing process of the cities in China, to learn from the pattern of governing of American city manager system, combining the real condition of China, and draw on the beneficial experience will bring great significances for the urbanization development of our country.
第一部分市经理制的内涵。介绍什么是市经理制,市经理制作为一种新型的城市管理体制,如何运行等;
第二部分市经理制的产生的历史背景。全面地梳理市经理制作为一种市政管理体制产生和发展的脉络;
第三部分市经理制的运行机制。主要分析市经理制存在的环境以及运行过程;
第四部分市经理制的综合分析。主要从正反两个方面揭示市经理制的特点;
第五部分启示和借鉴。主要阐述市经理制带给中国的经验和启示。
Three municipal systems are mainly being used by the Unite States currently, namely: Mayor and Parliamentary System, City Committee and City Manager System. All those three systems were set up in the wave of municipal reforms in the late 19th and early 20th centuries. During the process of development, the main form of Mayor and Parliamentary System had been transited from the traditional type of“weak major”to the one of“strong mayor”. Although this system played a positive part in the early period of the founding of the America, many new problems which need to be solved urgently appear in the city administration, along with the fast development of the American cities and the rapid expansion of its population.
Facing the urban rising problems and the expansion of city government functions, the“weak mayor system”has shown the inefficiency and incompetence. In order to change this situation, to meet the requirements of reformists, the local government expand the powers of the mayor and transferred the executive power from the parliamentary to the mayor, conferred him with financial budgeting power, the executive power, the power of appointing the municipal officials and the right of vote, then the“weak mayor”system has been transited to the“strong mayor system;
For the reason that Committee System has advantages like the open government affairs, multi-party elections, and the mutual balance between committees which avoiding the danger of the hidden power abuse, it was popular in middle-sized and small cities in America, especially in small cities, but with the ceaseless expansion of the modern city scale and the more and more complicated urban affairs, the committee system as an emergency system can not satisfy the needs of the fast-paced development of the modern cities, and gradually shows some flaws, thereupon it started to decline soon, it was currently carried out in few small towns. The City Manager System benefited the strengths of Mayor and Parliamentary System and adopted the concept of company management, so it fully adapted the rapid development form, and made great progresses, becoming to be the most prevailed municipal management system.
At present, different places adopt different municipal system according to the respective scale and character, hereinto, the city manager system are being adopted by more and more cities, and becomes to be the extensively-used system in America for its scientific administration and the concept of the experts governing the city.
This paper is divided into five parts, separately introducing the main content of manager system of American cities, its historical origins, its operation mechanism, the comprehensive characters and its revelation. The first part briefly concerns about the characters of city manager system as a scientific city administration system, it shows people a clear outline of the whole, and then make people understand the connotation of the city manager system. On the basis of this, the second and third part of the paper begin analyzing the three city administration systems of America in late 19th and early 20th centuries, expound the origin, developments and operating characters of this system at large, and analyses the background of its establishment in details, pointing out clearly that the city manager system was established under the conditions and bases of the followings like the great development of progressive movements, the appearance of the concept of public management, the hastening urbanization, and the popularization of the company administration concept. However, any system which can develop for long not only depends on its self-perfecting process, but also the guarantee of certain supervision mechanism and law system. Basing on this , the author analyses this mechanism comprehensively in the forth part of the paper, and concludes that the major factor of the steady development of American city manager system is that the democratic tradition with highly local self-government, which determines the enthusiasm of joining in the municipal management and decision-making, then the strong system of mass supervision is formed, and it prevents the political and administration mechanism corruption to appear, it helps increase efficiency meanwhile ensuring the social justice. Furthermore, the Unite States as a highly regulated country, the law is put on a position of unchallengeable supremacy. The local government carries out the policy that all the decisions are supposed to pass the hearing testimony and all the affairs should be handled according to the law procedure in order to ensure the social justice. Therefore, there is no officer who can make decisions by himself in the local government under this kind of municipal system, ensuring the system develops healthily.
Since the city manager system came into being, it had been ceaselessly developing. The number of city adopting the city manager system is increasing. During the developing process, it learns and benefits from the reasonable and beneficial parts of other theories and administration system to perfect itself, to fit for the administration characters of the modern urbanization. To absorb the academic“nutrition”from the research achievements helps us broaden our minds, so in the last part of this paper, the author concludes that the fundamental reason of which keeps the city manager system unfailing is the implement of the following three principles: the first one is the municipal administration system become to be operated like enterprise.
Among the American cities of which adopting the parliamentary manager system, the governments are constructed according to the modern enterprise pattern, and the second principle is the design of American modern government always works to deal with the relation between democracy and over-concentration of power; The third one is that the relation between the system of the government and the efficiency.
The municipal system of America is always designed and arranged with the aim of chasing the highest efficiency, and this is the major factor for a system to be accepted by people or not.Sincet the city manager system was established, the administrative efficiency and ability had been developed by implementing those three principles above. Then more and more people recognize it.
In the developing process of the cities in China, to learn from the pattern of governing of American city manager system, combining the real condition of China, and draw on the beneficial experience will bring great significances for the urbanization development of our country.
引文
1谭君久:《当代各国政治体制——美国》,兰州大学出版社,1997 年 11 月,第 314-315 页。
2 曹永森:《美国市政管理企业化改革评述》,《南京航空航天大学学报(社会科学版)》,2002 年 9月第 3 期,第 24 页。
3 孙建军:《美国城市经理制的初步确立》,《兰州商学院》,2004 年 10 月,第 5 期,第 48 页。
4 U. S. Bureau of Census, Historical Statistics of the United States:Colonial Times to 1970, p.11-12.
5 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 128页。
6 U. S. Bureau of Census, Historical Statistics of the United States:Colonial Times to 1970, p.11-12.
7 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 128页。
8 曹永森:《美国市政管理企业化改革评述》,《南京航空航天大学学报(社会科学版)》,2002 年 9月第 3 期,第 25 页。
9 孙建军:《美国城市经理制的发展》,《经济研究参考》,2003 年第 82 期,总第 1754 期,第 25 页。
10 孙建军:《美国城市经理制的发展》,《经济研究参考》,2003 年第 82 期,总第 1754 期,第 26 页。
11 同上。
12 同上。
13谭君久:《当代各国政治体制——美国》,兰州大学出版社,1997 年 11 月版,第 319-320 页。
14 K. T. Jackson et al ed., The Cities in American History, N.Y., 1972, p358.
15 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 128页。
16 Hebert Welsh, A Definite Step toward Municipal Reform.
17 黄正东:《美国市政府体制概述》,《政治学研究》,1986 年第 2 期,第 29 页。
18 孙建军:《美国城市经理制的发展》,《经济研究参考》,2003 年第 82 期,总第 1754 期,第 25 页。
19 王旭:《一种富有生机的市政体制—美国市经理制纵向剖析》,《美国研究》,1989 年第 3 期,15页。
20 同上。
21 邢佳佳:城市化与美国市政体制改革,《山东师大学报(社会科学版)》,1998 年第 3 期,第 36页。
22 徐理明:《市政管理学》,科学出版社 1989 年版,第 136 页。
23 王旭:《一种富有生机的市政体制—美国市经理制纵向剖析》,《美国研究》,1989 年第 3 期,第14 页。
24 金怒江:《美国城市经理制研究》,《社会科学》,2004 年第 11 期,第 30 页。
25《美国的城市政府体制及其改革》,《政治学科建设与研究》,1993 年, http://sub.whu.edu.cn/jjtan/USCity.htm
26 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 129页。
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2 曹永森:《美国市政管理企业化改革评述》,《南京航空航天大学学报(社会科学版)》,2002 年 9月第 3 期,第 24 页。
3 孙建军:《美国城市经理制的初步确立》,《兰州商学院》,2004 年 10 月,第 5 期,第 48 页。
4 U. S. Bureau of Census, Historical Statistics of the United States:Colonial Times to 1970, p.11-12.
5 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 128页。
6 U. S. Bureau of Census, Historical Statistics of the United States:Colonial Times to 1970, p.11-12.
7 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 128页。
8 曹永森:《美国市政管理企业化改革评述》,《南京航空航天大学学报(社会科学版)》,2002 年 9月第 3 期,第 25 页。
9 孙建军:《美国城市经理制的发展》,《经济研究参考》,2003 年第 82 期,总第 1754 期,第 25 页。
10 孙建军:《美国城市经理制的发展》,《经济研究参考》,2003 年第 82 期,总第 1754 期,第 26 页。
11 同上。
12 同上。
13谭君久:《当代各国政治体制——美国》,兰州大学出版社,1997 年 11 月版,第 319-320 页。
14 K. T. Jackson et al ed., The Cities in American History, N.Y., 1972, p358.
15 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 128页。
16 Hebert Welsh, A Definite Step toward Municipal Reform.
17 黄正东:《美国市政府体制概述》,《政治学研究》,1986 年第 2 期,第 29 页。
18 孙建军:《美国城市经理制的发展》,《经济研究参考》,2003 年第 82 期,总第 1754 期,第 25 页。
19 王旭:《一种富有生机的市政体制—美国市经理制纵向剖析》,《美国研究》,1989 年第 3 期,15页。
20 同上。
21 邢佳佳:城市化与美国市政体制改革,《山东师大学报(社会科学版)》,1998 年第 3 期,第 36页。
22 徐理明:《市政管理学》,科学出版社 1989 年版,第 136 页。
23 王旭:《一种富有生机的市政体制—美国市经理制纵向剖析》,《美国研究》,1989 年第 3 期,第14 页。
24 金怒江:《美国城市经理制研究》,《社会科学》,2004 年第 11 期,第 30 页。
25《美国的城市政府体制及其改革》,《政治学科建设与研究》,1993 年, http://sub.whu.edu.cn/jjtan/USCity.htm
26 王旭:《美国市政体制与市政管理中的企业化思想》,《经济体制改革》,1995 年第 5 期,第 129页。
1、范旭、李莉:《市政学》,中国社会科学出版社,2004 年 10 月版。
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