张晓彤
摘 要：尽管官僚在政府决策制定和实际执行中发挥着重要作用，但人们对官僚机构褒贬不一，学者对官僚自主性的评价也毁誉参半。本文重新审视官僚自主性的概念和基础，主张在关系维度和过程维度两种视阈中审视官僚自主性，在此基础上分析了官僚自主性在发达国家和发展中国家的不同表现和影响，以回答对官僚机构及其自主性的认知呈现巨大分歧的原因。其中，关系维度（官僚与政治家、官僚与社会关系）中的官僚自主性关注空间上横向的、相对静止的分析，而过程维度（国家构建过程）中的官僚自主性则可以理解为一种时间上纵向的、历时性变化的研究。本文提倡将关系维度中的官僚自主性分析置于过程之中，即对官僚机构及其自主性在国家构建和经济发展中的角色作历时性的和语境的分析，以更全面和综合性地理解官僚自主性的现实意义和理论价值。
关键词：官僚自主性；政治家—官僚关系；委托—代理关系；国家构建；语境分析
【作者】张晓彤，北京大学政府管理学院政治学（比较政治学）博士研究生。
【Title】Bureaucratic Autonomy: Concept, Analytical Dimension, and Influence
Abstract: Though bureaucrats play an important role in government decision-making and implementation, opinions on bureaucratic institutions and autonomy are divided and mixed. This article re-examines the concept and foundation of bureaucratic autonomy and suggests examining bureaucratic autonomy from two perspectives: the relational dimension and the process dimension, based on which I analyze the different manifestations and impacts of bureaucratic autonomy in both developed and developing countries, to explain the divergent understanding of bureaucratic institutions and autonomy. In the relational dimension (bureaucrats' relationships with politicians and society), analyses on bureaucratic autonomy focus on horizontal nexuses spatially and are relatively static, while in the process dimension (state building), analyses on bureaucratic autonomy are rather longitudinal and diachronic. This article advocates bringing in the relational dimension of bureaucratic autonomy, that is, to analyze the role of bureaucratic institutions and autonomy in the context of state building and economic development over time, to understand the real-world significance and theoretical value of bureaucratic autonomy.
Key words: Bureaucratic autonomy, Politician-Bureaucrat relationship, Principal-Agent relationship, State building, Contextual analysis