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公共行政体系包含双重结构:一种是显露于外的显性结构,另一种是隐藏在显性结构背后的隐性结构。每一层结构都是由诸多要素构成的,是结构化的整体。然而,在公共行政研究中,人们所关注的仅仅是其显性结构,组织设计、制度安排以及行政行为的展开,都是在显性结构的层面上做文章,行政改革也总是在公共行政的显性结构层面上寻求变革,而公共行政的隐性结构则受到忽视。可是,公共行政的隐性结构并不因为人们对它的忽视而不发挥作用,在现实的行政实践中,隐性结构及其构成要素时时刻刻都发挥影响作用。所以说,科学的公共行政研究及其实践需要在关注行政显性结构的同时,也去认识行政隐性结构,并着力把握它们之间的互动和相互转化。只有这样,才能总体性地把握公共行政体系,从而获得开展行动的科学方案。
The system of public administration contains a dual structure: one is the dominant structure exposed outside and the other is the hidden structure hidden behind the dominant structure. Each layer structure is composed of many elements, is a structured whole. However, in the study of public administration, people pay close attention only to its explicit structure, organizational design, institutional arrangements and the launching of administrative acts. They all make an issue on the explicit structural level, and the administrative reforms are always carried out in the public administration Seeking for change at the explicit structural level, the hidden structure of public administration is ignored. However, the hidden structure of public administration does not play a role because people neglect it. In the actual administrative practice, the hidden structure and its components always exert influence. Therefore, the scientific public administration research and its practice need to pay attention to the administrative implicit structure as well as focus on the administrative dominant structure, and strive to grasp the interaction and mutual transformation among them. Only in this way can we grasp the system of public administration as a whole and thereby obtain a scientific plan of action.