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工业化推动一个地域性社会转变为民族国家,呈现出不断走向开放的轨迹。但是工业社会并没有实现完全的开放性,工业社会是通过划定边界、在民族国家内部进行自上而下的治理来维持社会秩序,这使得政治和社会生活只是实现了有限的开放性。其中,作为治理工具的公共政策发挥的是管理和控制的功能,制定和实施政策的目标是维护社会的封闭与割据状态。全球化、后工业化意味着全面开放社会的到来,沿着开放社会的逻辑,单向度的管理和控制失去了存续下去的条件。公共政策不再只具有工具意义,而是生成于多元主体的合作行动中又服务于合作行动,成为道德的载体,以实现人的共生共在。
Industrialization has promoted the transformation of a regional society into a nation-state, showing a constant path toward opening up. However, the industrial society did not achieve complete openness. The industrial society maintained its social order by demarcating the boundary and conducting top-down government within the nation-state, which made the political and social life only achieved limited openness. Among them, the public policy as a governance tool plays a management and control function, and the goal of formulating and implementing the policy is to maintain the status of social closure and separatism. Globalization and post-industrialization mean the opening of an all-round open society. They have lost the conditions for survival along the logic of an open society and unidirectional management and control. Public policy is no longer just instrumental, but is generated from cooperative actions of multiple subjects and served as cooperative carriers of morality in order to realize the symbiosis of human beings.