In people's minds, administration is often regarded as the study of government management. But the concept of "government" is actually a political concept. The so-called government refers to the "Government Council". Generally speaking, the concept of government is always used when discussing the relationship between government and society and other state institutions, especially when a problem belongs to the category of political science, it will definitely involve the concept of government. However, if we discuss administrative management at this level, it seems far-fetched, so that when to use the two concepts of government and administration in the research and narration of administrative management shows great randomness.

The relationship between government and administration can be understood as follows: administrative actions are generated by the government and undertaken by organizations or personnel in the government. What administration sees in the government is the administrative system, not the government itself. It is inaccurate to say that administration studies the government. Because, from the perspective of administration, the government exists as an administrative system, and the administrative system is the research object established through the abstraction of administration. In other words, administration does not study the whole government, it only studies the administrative behavior of the government and all aspects related to administrative behavior. As for the political ownership of the government, the research on administrative management can be ignored, and its research tends to be technical, belonging to administrative management in the sense of technical abstraction. Therefore, in the study of administration, people who have received professional training or professional accomplishment are generally not used to using the concept of government, and they always try their best to use the concept of administration. For example, replace the government as a concept of political science with a series of concepts such as administrative subject, administrative organization, administrative agency and administrative department. Even when using the concept of government, they really refer to the administrative system and administrative behavior of the government. It can be seen that although we define administration as a science that specializes in the management of state and social affairs by modern government, the government mentioned here only refers to the aspects related to administrative activities, and does not include the study of all aspects of government.

For a long time, administration has existed as a branch of political science, so it is necessary to accept the concept of government in political science. As a branch of political science, the research content of administrative science must be very specific. Because it doesn't need any theory, the theory that it can be established as a discipline is endowed by political science. Although administration was put forward as an independent discipline at the end of 19 and the beginning of the 20th century [2], it only introduced more management contents, but as far as the theoretical attribution of the discipline is concerned, it still hasn't stepped out of the boundaries delineated by political science. Administration does not have its own independent theoretical results, and the concept of government has become an obstacle for administration to analyze its own research objects. Some people have always doubted whether administration is an independent discipline. There is an unwritten tacit understanding in the scientific community that a discipline without its own independent theory will never be regarded as an independent discipline. If administration wants to be an independent discipline, it can't accept the government theory provided by political science. It needs to abstract the government into an administrative system to analyze, in order to fundamentally solve the problems of administrative science as an independent discipline. We believe that with the emergence of a group of scholars with the professional quality of administrative management, their research will start with the analysis of the administrative system, build a disciplinary system of administrative management, and determine the basic content of the research.

Second, is administration management?

In the research of administrative science in China, the subject of administrative science is also administrative management, which leads to the unclear demarcation between administrative science and management science and becomes an embarrassment in teaching and scientific research practice. From the concept of administrative management, we can see that, to a certain extent, people regard administrative science as a branch of management science, which is a special and specific management discipline, that is, the management science about administration. According to this idea, some scholars have suggested that since the concept of administration itself contains the meaning of management, it should not be called administrative management, but government management, that is, the government is both the subject and the object of management. On the surface, this seems reasonable. However, if we go deeper, we will find that government is a political concept. Under this concept, we will encounter some unanswerable questions when we carry out discipline construction and expand the research content of administration. For example, according to the thinking of political science, management science should be management science or political science. In fact, administrative science often argues whether it is management science or political science, because it is related to the research content and methods of administrative science. If administration exists as politics or as a branch of politics, it is necessary to introduce more political concepts and principles into the study of administration. Moreover, if administrative science is positioned in the position of government management and government management, it will inevitably encounter political questions that must be answered. However, calling it government management is actually taking it as a management science. In the development of management science in the 20th century, one of the most typical features is to construct the discipline of management science according to scientific principles and exclude the interference of value factors.

In a sense, political science and management science are far apart, each with its own independent discipline standards and methodological principles, and these standards and principles are in great conflict. Although there were scientific efforts in politics in the second half of the 20th century, some scholars tried to establish the so-called politics, but this effort was not widely recognized, and it proved impossible to achieve truly meaningful results. In the development of management science, there is also the theory of management culture school, but at most, it only puts forward that we should pay attention to the influence of cultural factors and people's values on the management process and put forward the management problems of different cultural types, but management scientists have never prepared to establish different cultural types of management. So far, we can't imagine the so-called American management or Japanese management, let alone the so-called socialist management or capitalist management. In short, politics and management should not be politicized.

In this case, it is impossible to compromise between politics and management. The disciplinary position of administrative science can only be determined by the personal orientation of administrative scientists at most. If administrative scholars serve the ruling purpose, seek technical support to strengthen the legitimacy of ruling behavior, or defend the ruling administrative model, they will use political thinking methods to solve administrative problems more. When an administrator studies administrative management from the perspective of management, he will construct administrative management according to the discipline standards and methodological principles of management. However, in the history of mankind, in a long historical stage, the administrative actions produced in the government all serve the purpose of governance, and the administrative system structure in the government is also subordinate to the needs of governance. This kind of administration, which serves the ruling and mainly performs the ruling function, is the administrative model in all traditional societies. In modern society, with the development of market economy and the separation of public and private fields, the government's ruling function and management function have formed a government administrative model with the purpose of service management and mainly undertaking management functions. We call the former ruling administration and the latter management administration.

As two stages or two administrative models in the history of human administrative development, ruling administration and management administration are historic. They are not the ultimate model of human administration, and there will be new administrative management models to replace them in the future. Therefore, it is not advisable to construct administrative management from the perspective of politics or management. The relationship between administration, politics and management at different stages in history only proves that administration once existed as a branch of politics and once existed as a branch of management, but there was an independent process in its development process, which has shown the possibility of existence as an independent discipline today. Understanding this characteristic of the development of administrative science will find a direction for the research of administrative science. That is to say, in a long period of time, the focus of the research work of administrative science is to build administrative science into an independent discipline. Some people think that administration is a "marginal discipline" or "cross-discipline". In fact, this view is very irresponsible, and it is an excuse that we don't want to do in-depth research on emerging disciplines, but want to locate them. When any discipline first appeared, it was borderline and intersectional, but its borderline and intersectionality was "fetal hair" in infancy, and once it matured, it would be removed. In other words, we can't call any mature subject a marginal subject or an interdisciplinary subject, but we can only describe it temporarily when the subject is not mature. The development of administrative science still has the characteristics of borderline and cross-cutting, but this characteristic should not be strengthened, but should be gradually eliminated through the determination of the research object and scope of the discipline itself and its own independent theoretical construction.

Whether administration is an independent discipline depends first on whether it has its own independent research object. We don't agree to regard administrative science only as the knowledge of government management, which often confuses the research object of administrative science with the research object of political science. Similarly, when we put forward the concepts of "ruling administration" and "management administration", we should also emphasize that there have been historical periods of ruling administration and management administration in the history of human administration, but in the future, it may be a service administration that is different from both ruling administration and management administration. Therefore, just because we are in an era of management administration, we should not simply regard administrative management as management science or a branch of management science. This determines that administration can neither examine the government as a complete object like politics, nor construct its own discipline mainly through the analysis of management process and behavior like management. Administrative management needs to abstract the concept of administrative system from government entities, determine the reasonable structure of administrative system through its analysis, and grasp the internal and external mechanisms of administrative system. Of course, in the era when managerialism is rampant in all fields of social science, it is inevitable to accept the baptism of managerialism more in the study of administrative science. Our wish is to still build administrative science into an independent discipline.

In view of the relationship between administration and politics and management, it absorbed rich nutrition from politics and management in the early stage of its formation and development, which is very important for the growth of administration. In the future development of administrative management, we will continue to learn and learn from the theories and methods of political science and management. Similarly, we constantly draw useful factors from various disciplines such as law, economics, sociology and psychology. Moreover, we find that a large number of scholars who study and study other disciplines in various countries have been joining the research of administrative science, bringing the theories and methods of other disciplines to administrative science, which is extremely beneficial to promoting the development of administrative science, and it is precisely for this reason that administrative science has become a prominent contemporary school. However, the behavior of learning from other disciplines and drawing lessons from all valuable factors has not pushed the science of administration to the direction of marginalization and crossover, but has further promoted the maturity of the science of administration and made its characteristics as an independent discipline more prominent.

Fourthly, the research content of administrative science.

It is believed that administration is a science that specializes in the management of state and social affairs by the government. This is a general definition of administration, which is largely descriptive. Specifically, administration is actually a science that takes the administrative system and its operation as the research object, and looks for ways to optimize the management of state and social affairs in the process of studying the administrative system and its operation mechanism. In other words, the administrative system and its operating mechanism are the research contents of administrative science.

Administration has its own history, and the administrative system in each period is based on certain social politics, economy and culture, reflecting their requirements and providing them with overall support. From the structure of administrative system, it mainly includes three aspects: (1) an objective structural system composed of administrative system, administrative organization, administrative organization, administrative human resources and other elements; (2) Subjective structural system consisting of administrative power, administrative laws, administrative policies and administrative management methods; (3) Value structure system composed of administrative will, administrative obligation, administrative responsibility and administrative personality. The overall dynamic balance of these three systems is a sign of a sound administrative system, and their coordinated operation is manifested as the function of the administrative system.

The objective structure of administrative system is the existence and operation mode of the relationship among material objective elements such as administrative system, administrative organization, administrative organization and administrative personnel resources, and it is the objective form of administrative system. Broadly speaking, the objective material and environmental factors are also the elements of its objective structure.

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Because the objective material environment affects or restricts the objective structure of the administrative system, the choice of the administrative system, the setting of organizations, the setting of institutions and the status of personnel all depend on the objective material environment of the administrative system to a great extent. In the study of the objective structure system of administrative system, the theory of administrative personnel, administrative organizations, administrative institutions and civil service system has been formed, which contains the material and financial guarantee conditions and methods for the operation of the corresponding administrative system.

The subjective structure of administrative system refers to the sum of all kinds of relations composed of subjective elements such as administrative power, administrative law, administrative policy and administrative management methods, and is the subjective form of administrative system. In a broad sense, it should also include the dominant political concept, ideology, cultural and psychological structure and other factors. Of course, administrative power is an objective force, but it is essentially a subjective identification of administrative objects. Therefore, it appears in the form of organizational authority. Administrative laws and policies are the reflection of objective social relations and the formalization of ruling will and its concept. Administrative management method is the understanding of the objective law of administrative management and the condensation of previous experience. Compared with the objective structural system, the subjective structural system of administrative system has the relative flexibility and variability of the whole system. Because of the closer relationship with specific administrative relations and administrative actions, the status of administrative relations and administrative actions will be constantly reflected in the administrative subject structure system. Under normal circumstances, the subjective administrative structure system adjusts administrative relations and administrative behaviors on the premise of keeping itself basically unchanged. However, the ever-changing real social life always challenges the established administrative relations and behaviors and requires them to adapt to the needs of real social life through constant changes. When this change reaches a certain level, it will put forward the requirement of changing the main structure of the administrative system. Therefore, the administrative subject structure system has an active and unstable structure, and the change and development of the administrative system is always manifested in the change of its subject structure system first. Of course, changes in the administrative system are often directly manifested in the conscious actions taken by the national ruling class to meet the requirements of social life and economic structure. Therefore, through the study of the main structure system of the administrative system, we can accurately grasp the realization of the internal and external functions of the administrative system, better understand and deal with the relationship between administration and its political and cultural ecology, understand the driving force of administrative reform and development, and make feasible scheme design for administrative reform.

The value structure of administrative system mainly refers to the adjustment system which is composed of administrative will, administrative obligation, administrative responsibility, administrative personality and other basic elements of administrative organizations, administrative personnel or civil servants, and is deeply hidden in the objective structure system and subjective structure system of administrative system. Because these factors are hidden in various administrative relations and administrative behaviors and always play an important regulatory role. Discovering the value structure system of the administrative system and studying it deeply can find a realistic way out for the construction of administrative ethics and fully mobilizing the enthusiasm of people in the administrative system.

Since administration is a science that studies the government's management of state and social affairs, under this premise, the study of administrative system is subject to the goal of efficiency and fairness. If administrative science only stays in the grasp of the subjective and objective structure of the administrative system, then it must belong to the category of efficiency centralism. However, once the administration tries to find its value structure behind the objective and subjective structure of the administrative system, it will organically combine its efficiency goal with its fairness goal. Therefore, studying the value structure of administrative system and applying the research results to the design of administrative system will better solve the contradiction between fairness and efficiency, thus pushing the development of human administration to a new historical stage.

refer to

Wilson. Research on administrative management [A]. Peng Heping. Selected foreign administrative theories [C]. Beijing: Central Party School Press, 1997.

[2] Goodnow. Politics and administration [M]. Beijing: Huaxia Publishing House.

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