论我国政府部门人力资源管理制度的完善与创新
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摘要
人力资源在当今社会已经成为了人类最宝贵的第一资源。虽然人力资源管理的思想产生和发展于企业界,但是随着英美等发达国家新公共管理运动和政府再造运动的蓬勃兴起,企业人力资源管理领域的理念和行为方式逐渐注入政府部门,并得到了一定的推广和应用。
本文的研究对象――政府部门人力资源指的是各级各类国家机关中除工勤人员以外的工作人员,大致等于我国国家公务员的范畴。对政府而言,它的工作效率和水平,就取决于它对其人力资源的管理效率和水平。而当今政府人力资源管理不断面临着种种挑战,如何提高政府人力资源管理的水平,就成为一项具有重大理论与实践意义的课题。从借鉴和移植的角度来讲,采用私营部门的先进的人力资源管理工具、技术和方法应该是风险和成本最小的策略。
我国从建国之初实行的传统干部人事制度到今年《公务员法》的正式实施,政府人力资源管理制度的建设在各方面都取得了一些成效,但我们不得不看到,制度建设中仍存在诸多不足之处,需要进一步完善和创新。制度中的问题主要存在于公务员职位分类制度、激励制度、考核制度和培训制度等几个方面。
对于分类管理中存在的问题,本文引入工作分析、分类管理技术对公务员的分类管理提出了科学方案;针对公务员激励制度中激励方式单一、激励手段落后等问题,详细分析了如何借鉴企业人力资源中的激励措施;而对于公务员考核中方法偏于定性、技术比较落后等问题,则大胆借鉴了各种绩效评估模型和绩效计量方法;最后文章对政府部门人力资源培训与开发也做出了系统的规范,提出了比较科学合理的完善与创新政府人力资源管理制度的对策。
Nowadays the human resource has already become the most precious resources in the world. Although the thought of the human resource management(HRM) was created and developed in the business enterprise field, but along with the development of new public management and Government Reengineering Movement in some developed countries like Britain and United States, the enterprise’s HRM viewpoint and the behavior was gradually adopted by government.
The human resource of the government in this thesis means all the staff members except logistic worker in every national organization, it is equal to the civil servant in China. As for government, the work efficiency depends on how effective its HRM is. But the HRM in the government now faces various challenges. How to raise the level of the governmental HRM becomes a very important task. Technologically Speaking, adopt the advanced tools and methods which used by enterprises should be the best strategy.
From the implementation of traditional cadre personnel mechanism adopted since the founding of China to the official implementation of Law of Civil Servants this year, effects have been achieved in some aspects of the construction of governmental human resource management system. But we cannot cast aside the deficiencies in the process, thus further improvement and innovation are urgently needed. The problems lying in the mechanism are mainly as follows, position classification system of civil servants, incentive system, assessment system and training system.
For the problem lying in the classification management, the thesis puts forward a scientific proposal by introducing work analysis, classification management technology into the classification management of civil servants. Aiming at the mono incentive measure and backwardness of incentive means, this thesis elaborates how do we draw upon incentive measures of human resources in enterprises; for the problem of the preference of qualitative assessment and the problem of the outdated technology, this thesis boldly employs diversified evaluation models and calculating methods. To sum up, the thesis standardizes systematic criteria for the training and exploration of human resources in governmental departments, it also proposes tactics to improve and perfect government human resources management system in a scientific and reasonable manner.
本文的研究对象――政府部门人力资源指的是各级各类国家机关中除工勤人员以外的工作人员,大致等于我国国家公务员的范畴。对政府而言,它的工作效率和水平,就取决于它对其人力资源的管理效率和水平。而当今政府人力资源管理不断面临着种种挑战,如何提高政府人力资源管理的水平,就成为一项具有重大理论与实践意义的课题。从借鉴和移植的角度来讲,采用私营部门的先进的人力资源管理工具、技术和方法应该是风险和成本最小的策略。
我国从建国之初实行的传统干部人事制度到今年《公务员法》的正式实施,政府人力资源管理制度的建设在各方面都取得了一些成效,但我们不得不看到,制度建设中仍存在诸多不足之处,需要进一步完善和创新。制度中的问题主要存在于公务员职位分类制度、激励制度、考核制度和培训制度等几个方面。
对于分类管理中存在的问题,本文引入工作分析、分类管理技术对公务员的分类管理提出了科学方案;针对公务员激励制度中激励方式单一、激励手段落后等问题,详细分析了如何借鉴企业人力资源中的激励措施;而对于公务员考核中方法偏于定性、技术比较落后等问题,则大胆借鉴了各种绩效评估模型和绩效计量方法;最后文章对政府部门人力资源培训与开发也做出了系统的规范,提出了比较科学合理的完善与创新政府人力资源管理制度的对策。
Nowadays the human resource has already become the most precious resources in the world. Although the thought of the human resource management(HRM) was created and developed in the business enterprise field, but along with the development of new public management and Government Reengineering Movement in some developed countries like Britain and United States, the enterprise’s HRM viewpoint and the behavior was gradually adopted by government.
The human resource of the government in this thesis means all the staff members except logistic worker in every national organization, it is equal to the civil servant in China. As for government, the work efficiency depends on how effective its HRM is. But the HRM in the government now faces various challenges. How to raise the level of the governmental HRM becomes a very important task. Technologically Speaking, adopt the advanced tools and methods which used by enterprises should be the best strategy.
From the implementation of traditional cadre personnel mechanism adopted since the founding of China to the official implementation of Law of Civil Servants this year, effects have been achieved in some aspects of the construction of governmental human resource management system. But we cannot cast aside the deficiencies in the process, thus further improvement and innovation are urgently needed. The problems lying in the mechanism are mainly as follows, position classification system of civil servants, incentive system, assessment system and training system.
For the problem lying in the classification management, the thesis puts forward a scientific proposal by introducing work analysis, classification management technology into the classification management of civil servants. Aiming at the mono incentive measure and backwardness of incentive means, this thesis elaborates how do we draw upon incentive measures of human resources in enterprises; for the problem of the preference of qualitative assessment and the problem of the outdated technology, this thesis boldly employs diversified evaluation models and calculating methods. To sum up, the thesis standardizes systematic criteria for the training and exploration of human resources in governmental departments, it also proposes tactics to improve and perfect government human resources management system in a scientific and reasonable manner.
引文
1 徐晓丹.从传统人事管理到公共人力资源管理――转轨时期我国政府人事管理改革的一种思路.甘肃行政学院学报,1999,3:42-43
2 William Petty. Political Arithmetick. London: Robert Clavel and Hen Mortlock, 1960, p155
3 Adam Smith. The Wealth of Nations, Great Britain: The Chaucer Press, 1776 , p26
4 David Ricardo. Principles of Political Economy and Taxation, Cambridge: Cambridge University Press, 1951, p97
5 T.M.Shultz. Investment in Human Capital. American Economic Review, 1961, p55
6 转引自张文贤,晏姚.人力资源开发与管理.上海:上海人民出版社,1996,18
7 李人杰,朱天锐.现代人力资源管理视角下的《公务员法》.江汉论坛,2006,7:146
8 倪星,揭建旺.试论政府人事管理的治道变革.探索,2003,5:40
9 王邦佐等.新政治学概要.上海:复旦大学出版社,1998,142
10 Everyman’s Encyclopaedia, Edited by D.A.Girling, J.M.Dent & Sons 1td London Mel Bourne To Ronto 1978 ,Volume 5, P643,
11 朱晓卫.公共部门人力资源开发与管理研究.哈尔滨:黑龙江人民出版社,2003,12-13
12 胡鞍钢.中国发展前景.杭州:浙江人民出版社,1999,399-401
13 中国教育与人力资源问题报告课题组.从人口大国迈向人力资源强国.北京:高等教育出版社,2003,273-274
14 Jan-Erik Lane. New Public Management, London: Routledge, 2000, p153-160
15 Pollitt. Christopher. Managerialism and the Public Services. (2nd). Oxford: Basil Blackwell, 1993, p277
16 James M. Buchanan. Public Finance and Public Choice: Two Contrasting Visions of the State. MIT Press, 1999, p107-109
17 倪星,揭建旺.试论政府人事管理的治道变革.探索.2003,5:39
18 David Osborne. Reinventing Government: How the Entrepreneurial Spirit is Transforming the Public Sector. New York: Penguin, 1992, p254
19 丁煌.西方行政学说史.武汉:武汉大学出版社,2002 年
20 戴维·奥斯本等.改革政府――企业精神如何改革着公营部门.上海:上海译文出版社,1996 年
21 劳伦斯·克雷曼.人力资源管理:获取竞争优势的工具.北京:机械工业出版社,1999
22 许法根.国家公务员制度.杭州:浙江大学出版社,2005
23 齐彬.公务员制推行取十项成绩,凡进必考机制基本建立.新华网,2003-8-13
24 王霁.公务员职位分类制度的比较与借鉴.行政与法,2005,01:82-83
25 石佑启.公务员职位分类制度的创新.学习月刊,2005,7:13-14
26 程林.公务员激励机制的健全.学习月刊.2005,7:18-19
27 王金华.试论我国公务员激励机制的完善.云南行政学院学报.2005,3:87-88
28 钱再见等.公务员制度创新与实施.广州:广东人民出版社,2002, 96
29 吴志华.现代人力资源管理.上海:中国纺织大学出版社,1996,115-116
30 杨桦.公务员素质保障机制的优化.学习月刊,2005,7:15
31 孙柏瑛,祁光华.公共部门人力资源开发与管理.北京:中国人民大学出版社.2004,160
32 W. F. Willoughby, Principles of Public Administration, 1928, 1, p166
33 中国共产党第十三次全国代表大会文件汇编,人民出版社,1987,43
34 唐代望,唐晓阳.国家公务员暂行条例在实施中的问题及其对策.公共行政与人力资源.1999,6
35 Abraham Maslow. A Theory of Human Motivation. Psychological Review, 1943, p70
36 Victor H. Vroom. Work and Motivation. New York, NY: John Wiley and Sons, 1964. p332
37 Skinner B.F. The technology of teaching. New York: Appleton-Century -Crofts, 1968. p90
38 彼得·德鲁克.二十一世纪管理挑战.北京:生活·读书·新知三联书店,2000
39 Stephen P. Robbins.Organizational Behavior.北京:清华大学出版社,2002
40 Victor H. Vroom. Work and Motivation. New York, NY: John Wiley and Sons, 1964. p332
41 王金华.试论我国公务员激励机制的完善.云南行政学院学报,2005,3:89-90
42 石金涛.现代人力资源开发与管理(第二版).上海:上海交通大学出版社,1999,139-140
43 刘旭涛.政府绩效评估:制度、战略与方法.北京:机械工业出版社,2003,102-103
44 廖晓珊.县(区)级公务员考核评价系统研究.昆明理工大学学报,1996,5
45 胡君辰.人力资源开发与管理(第2版).上海:复旦大学出版社,1999, 210-214
46 韩国明,刘玉泉.西方国家公务员培训制度对我国的借鉴意义.行政与法,2005,03:61-62
[1] William Petty. Political Arithmetick. London: Clavel&Hen Mortlock, 1960, p155
[2] Adam Smith. The Wealth of Nations, Britain: The Chaucer Press, 1776 , p26
[3] David Ricardo. Principles of Political Economy and Taxation, Cambridge: Cambridge University Press, 1951, p97
[4] T.Shultz. Investment in Human Capital. American Economic Review, 1961, p55
[5] Jan-Erik Lane. New Public Management, London: Routledge, 2000, p153-160
[6] David Osborne. Reinventing Government: How the Entrepreneurial Spirit is Transforming the Public Sector. New York: Penguin, 1992, p254
[7] W. F. Willoughby, Principles of Public Administration, 1928, 1, p166
[8] A.Maslow. A Theory of Human Motivation. Psychological Review, 1943, p70
[9] Frederick Herzberg. One more time: how do you motivate employees. Harvard Business Review, 1968,46, p145-172.
[10] Victor Vroom. Work and Motivation. New York: John Wiley and Sons, 1964. p332
[11] Skinner. The technology of teaching. New York: Century-Crofts, 1968. p90
[12] James M. Buchanan. Public Finance and Public Choice: Two Contrasting Visions of the State. MIT Press, 1999, p107-109
[13] Pollitt. Christopher. Managerialism and the Public Services. (2nd). Oxford: Basil Blackwell, 1993, p277
[14] Bratton, John. Human Resource Management:Theory and Practice. New York:Addison-Wesley Longman,Inc.
[15] D.A.Girling, J.M.Dent. Everyman’s Encyclopaedia, London:To Ronto, Vol5, p643
[16] Stephen P. Robbins. Organizational Behavior. 北京:清华大学出版社,2002
[17] 罗纳德·克林德勒,约翰·纳尔班迪.公共部门人力资源管理:系统与战略.北京:中国人民大学出版社,2001
[18] 戴维·奥斯本等.改革政府――企业精神如何改革着公营部门.上海:上海译文出版社,1996
[19] 杰依·M·谢夫利兹,戴维·H·罗森布卢姆.政府人事管理.北京:中共中央党校出版社,1997,5
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[21] 劳伦斯·S·克雷曼.人力资源管理:获取竞争优势的工具.北京:机械工业出版社,1999,90-114
[22] 彼得·德鲁克.二十一世纪管理挑战.北京:三联书店,2000,142-156
[23] 西奥多·舒尔茨.人力资本投资.北京:商务印书馆,1990,179-180
[24] 中国共产党第十三次全国代表大会文件汇编,人民出版社,1987,43
[25] 徐晓丹.从传统人事管理到公共人力资源管理――转轨时期我国政府人事管理改革的一种思路.甘肃行政学院学报,1999,3:42
[26] 张文贤,晏姚.人力资源开发与管理.上海:上海人民出版社,1996,18
[27] 李人杰,朱天锐.现代人力资源管理视角下的《公务员法》.江汉论坛,2006,7:146
[28] 倪星,揭建旺.试论政府人事管理的治道变革.探索,2003,5:40
[29] 王邦佐等.新政治学概要.上海:复旦大学出版社,1998,142
[30] 朱晓卫.公共部门人力资源开发与管理研究.哈尔滨:黑龙江人民出版社,2003,12
[31] 胡鞍钢.中国发展前景.杭州:浙江人民出版社,1999,399-401
[32] 中国教育与人力资源问题报告课题组.从人口大国迈向人力资源强国.北京:高等教育出版社,2003,273-274
[33] 倪星,揭建旺.试论政府人事管理的治道变革.探索.2003,5:39
[34] 丁煌.西方行政学说史.武汉:武汉大学出版社,2002
[35] 许法根.国家公务员制度.杭州:浙江大学出版社,2004
[36] 齐彬.公务员制推行取十项成绩,凡进必考机制基本建立.新华网,2003-8-13
[37] 程林.公务员激励机制的健全.学习月刊.2005,7:18-19
[38] 王金华.试论我国公务员激励机制的完善.云南行政学院学报.2005,3:87-88
[39] 钱再见等.公务员制度创新与实施.广州:广东人民出版社,2002,96
[40] 吴志华.现代人力资源管理.上海:中国纺织大学出版社,1996,115-116
[41] 孙柏瑛,祁光华.公共部门人力资源开发与管理.北京:中国人民大学出版社.2004,160
[42] 黄德林等.对公务员实施“负激励”中存在的问题及其对策.中国行政管理.2004,3:51
[43] 刘旭涛.政府绩效评估.北京:机械工业出版社,2003,102-103
[44] 廖晓珊.县(区)级公务员考核评价系统研究.昆明理工大学学报,1996,5
[45] 胡君辰.人力资源开发与管理.上海:复旦大学出版社,1999,210-214
[46] 石佑启.公务员职位分类制度的创新.学习月刊,2005,7:13-14
[47] 王霁.公务员职位分类制度的比较与借鉴.行政与法,2005,01:82-83
[48] 唐代望,唐晓阳.国家公务员暂行条例在实施中的问题及其对策.公共行政与人力资源.1999,6
[49] 杨桦.公务员素质保障机制的优化.学习月刊,2005,7:15-16
[50] 韩国明,刘玉泉.西方国家公务员培训制度对我国的借鉴意义.行政与法,2005,03:61-62
2 William Petty. Political Arithmetick. London: Robert Clavel and Hen Mortlock, 1960, p155
3 Adam Smith. The Wealth of Nations, Great Britain: The Chaucer Press, 1776 , p26
4 David Ricardo. Principles of Political Economy and Taxation, Cambridge: Cambridge University Press, 1951, p97
5 T.M.Shultz. Investment in Human Capital. American Economic Review, 1961, p55
6 转引自张文贤,晏姚.人力资源开发与管理.上海:上海人民出版社,1996,18
7 李人杰,朱天锐.现代人力资源管理视角下的《公务员法》.江汉论坛,2006,7:146
8 倪星,揭建旺.试论政府人事管理的治道变革.探索,2003,5:40
9 王邦佐等.新政治学概要.上海:复旦大学出版社,1998,142
10 Everyman’s Encyclopaedia, Edited by D.A.Girling, J.M.Dent & Sons 1td London Mel Bourne To Ronto 1978 ,Volume 5, P643,
11 朱晓卫.公共部门人力资源开发与管理研究.哈尔滨:黑龙江人民出版社,2003,12-13
12 胡鞍钢.中国发展前景.杭州:浙江人民出版社,1999,399-401
13 中国教育与人力资源问题报告课题组.从人口大国迈向人力资源强国.北京:高等教育出版社,2003,273-274
14 Jan-Erik Lane. New Public Management, London: Routledge, 2000, p153-160
15 Pollitt. Christopher. Managerialism and the Public Services. (2nd). Oxford: Basil Blackwell, 1993, p277
16 James M. Buchanan. Public Finance and Public Choice: Two Contrasting Visions of the State. MIT Press, 1999, p107-109
17 倪星,揭建旺.试论政府人事管理的治道变革.探索.2003,5:39
18 David Osborne. Reinventing Government: How the Entrepreneurial Spirit is Transforming the Public Sector. New York: Penguin, 1992, p254
19 丁煌.西方行政学说史.武汉:武汉大学出版社,2002 年
20 戴维·奥斯本等.改革政府――企业精神如何改革着公营部门.上海:上海译文出版社,1996 年
21 劳伦斯·克雷曼.人力资源管理:获取竞争优势的工具.北京:机械工业出版社,1999
22 许法根.国家公务员制度.杭州:浙江大学出版社,2005
23 齐彬.公务员制推行取十项成绩,凡进必考机制基本建立.新华网,2003-8-13
24 王霁.公务员职位分类制度的比较与借鉴.行政与法,2005,01:82-83
25 石佑启.公务员职位分类制度的创新.学习月刊,2005,7:13-14
26 程林.公务员激励机制的健全.学习月刊.2005,7:18-19
27 王金华.试论我国公务员激励机制的完善.云南行政学院学报.2005,3:87-88
28 钱再见等.公务员制度创新与实施.广州:广东人民出版社,2002, 96
29 吴志华.现代人力资源管理.上海:中国纺织大学出版社,1996,115-116
30 杨桦.公务员素质保障机制的优化.学习月刊,2005,7:15
31 孙柏瑛,祁光华.公共部门人力资源开发与管理.北京:中国人民大学出版社.2004,160
32 W. F. Willoughby, Principles of Public Administration, 1928, 1, p166
33 中国共产党第十三次全国代表大会文件汇编,人民出版社,1987,43
34 唐代望,唐晓阳.国家公务员暂行条例在实施中的问题及其对策.公共行政与人力资源.1999,6
35 Abraham Maslow. A Theory of Human Motivation. Psychological Review, 1943, p70
36 Victor H. Vroom. Work and Motivation. New York, NY: John Wiley and Sons, 1964. p332
37 Skinner B.F. The technology of teaching. New York: Appleton-Century -Crofts, 1968. p90
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