政府流程再造的模式选择与经验研究
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摘要
政府流程再造产生于西方的新公共管理运动,是结合了“政府再造”思想与业务流程再造理论的一种政府改革的新举措。建立以公众需求为核心的政府流程体系,是适应当今政府改革趋势的根本要求。同时,政府流程再造所涵盖的意义不仅仅局限在单纯的业务流程优化,更多反映出政府组织理念的更新和组织结构、管理模式的变革,通过这些创新的措施来充分提高政府行政效能。
本文以政府流程再造的“模式”为视角,运用规范研究和实证研究相结合的方法,以对比的角度对政府流程再造的理论与实践中的问题进行了探讨。本文分为四个部分:
首先,对国内外关于政府流程再造的研究进行了综述,总结了政府流程再造的理论与实践的研究现状和发展趋势。
其次,以西方新公共管理运动产生的主要理论为背景,结合当前政府改革的趋势,搭建了政府流程再造的理论框架,并在此框架下充分挖掘了政府流程再造的内涵、原则和实施路径。
再次,从当前我国政府进行的电子政府建设、大部制建设、政府绩效管理和政府职能转型四个层面来探索行政体制改革具体措施对“政府流程”的需求;接下来分析了政府流程再造的三项辅助措施,即行政文化、管理体制和技术措施;在此基础上,对政府流程再造模式进行分类与评价,总结了适应我国政府流程再造的理想模式。
最后,以案例分析的形式,对哈尔滨市质量技术监督局的政府流程再造项目实际操作中的模式与理想模式进行对比,比较了存在的差异,分析了其存在的原因,得出了符合当前我国政府流程再造的改进对策。
作为一种经验研究,本文的主要创新在于:搭建了政府流程再造的理论框架;探讨了政府流程再造在行政体制改革中的定位;总结了政府流程再造的理想模式,并对比现实中政府流程再造的问题,提出了改进的对策。
Government Process Reengineering produced in the west, the New Public Management movement, is a new government reform initiative which combines "reinventing government" thinking and Business Process Reengineering theory. Establishing the public demand for the core system of government processes, is the fundamental requirement to adapt to current trends in government reform. Meanwhile, the meaning of Government Process Reengineering is not only limited to the business process optimization simply, but much more reflects on the concept of governmental organizations updating and organizational structure, administration mode changing, which fully achieve greater administrative efficiency by these innovative measures. In this paper, we use comparative analysis to discuss the problems in theory and practice, with the perspective of“mode of Government Process Reengineering”, and the method combines the normative and empirical research. This article is divided into four parts:
First of all, the studies on Government Process Reengineering in China and abroad were reviewed, and the research status and development trend of the Government Process Reengineering in theory and practice are summed up.
Secondly, with the background of main theories from western New Public Management movement and the current trends in government reform, we had built a theoretical framework for Government Process Reengineering, in which we fully exploited the content, principles and implementation of the Government Process Reengineering.
Again, we explored the needs of specific measures in administrative reform for "government process", from the four levels of current e-government construction, large department system construction, government performance management and transformation of government functions, then we analyzed the three support measures to government process reengineering, such as administrative culture, management system and technical measures. On this basis, we made classification and evaluation of the Government Process Reengineering modes, and summed up the ideal mode of which adapted to Chinese situation.
Finally, as a case of Harbin Municipal Bureau of Quality and Technology Supervision, we compared projects mode with the ideal mode to find out the reasons why there are some differences, then obtained the countermeasures of the current Chinese Government Process Reengineering.
As an empirical study, the main innovations of this paper are to: build a theoretical framework of the Government Process Reengineering; investigate the position of process reengineering in the government administrative system reform; summed up the ideal model of Government Process Reengineering, and compare the real issues of Government Process Reengineering, then, proposed improvement measures.
本文以政府流程再造的“模式”为视角,运用规范研究和实证研究相结合的方法,以对比的角度对政府流程再造的理论与实践中的问题进行了探讨。本文分为四个部分:
首先,对国内外关于政府流程再造的研究进行了综述,总结了政府流程再造的理论与实践的研究现状和发展趋势。
其次,以西方新公共管理运动产生的主要理论为背景,结合当前政府改革的趋势,搭建了政府流程再造的理论框架,并在此框架下充分挖掘了政府流程再造的内涵、原则和实施路径。
再次,从当前我国政府进行的电子政府建设、大部制建设、政府绩效管理和政府职能转型四个层面来探索行政体制改革具体措施对“政府流程”的需求;接下来分析了政府流程再造的三项辅助措施,即行政文化、管理体制和技术措施;在此基础上,对政府流程再造模式进行分类与评价,总结了适应我国政府流程再造的理想模式。
最后,以案例分析的形式,对哈尔滨市质量技术监督局的政府流程再造项目实际操作中的模式与理想模式进行对比,比较了存在的差异,分析了其存在的原因,得出了符合当前我国政府流程再造的改进对策。
作为一种经验研究,本文的主要创新在于:搭建了政府流程再造的理论框架;探讨了政府流程再造在行政体制改革中的定位;总结了政府流程再造的理想模式,并对比现实中政府流程再造的问题,提出了改进的对策。
Government Process Reengineering produced in the west, the New Public Management movement, is a new government reform initiative which combines "reinventing government" thinking and Business Process Reengineering theory. Establishing the public demand for the core system of government processes, is the fundamental requirement to adapt to current trends in government reform. Meanwhile, the meaning of Government Process Reengineering is not only limited to the business process optimization simply, but much more reflects on the concept of governmental organizations updating and organizational structure, administration mode changing, which fully achieve greater administrative efficiency by these innovative measures. In this paper, we use comparative analysis to discuss the problems in theory and practice, with the perspective of“mode of Government Process Reengineering”, and the method combines the normative and empirical research. This article is divided into four parts:
First of all, the studies on Government Process Reengineering in China and abroad were reviewed, and the research status and development trend of the Government Process Reengineering in theory and practice are summed up.
Secondly, with the background of main theories from western New Public Management movement and the current trends in government reform, we had built a theoretical framework for Government Process Reengineering, in which we fully exploited the content, principles and implementation of the Government Process Reengineering.
Again, we explored the needs of specific measures in administrative reform for "government process", from the four levels of current e-government construction, large department system construction, government performance management and transformation of government functions, then we analyzed the three support measures to government process reengineering, such as administrative culture, management system and technical measures. On this basis, we made classification and evaluation of the Government Process Reengineering modes, and summed up the ideal mode of which adapted to Chinese situation.
Finally, as a case of Harbin Municipal Bureau of Quality and Technology Supervision, we compared projects mode with the ideal mode to find out the reasons why there are some differences, then obtained the countermeasures of the current Chinese Government Process Reengineering.
As an empirical study, the main innovations of this paper are to: build a theoretical framework of the Government Process Reengineering; investigate the position of process reengineering in the government administrative system reform; summed up the ideal model of Government Process Reengineering, and compare the real issues of Government Process Reengineering, then, proposed improvement measures.
引文
1高静学.政府流程再造的缘起.吉林省教育学院学报. 2007, 2(23):38
2 David Osborne , Peter Plastrik. Banishing Bureaucracy: The Five Strategies for Reinventing Government. New York: the Penguin Group. 1997
3 Russell M. Linden. A Practical Guide to Re-Engineering in the Public Sector . New York, 2002
4吴琼恩.公共管理.台湾智胜文化实业有限公司. 2001.9:3~18
5 McAdam R, Donaghy. Business Process Re-engineering in the Public Sector A Study of Staff Perceptions and Critical Success Factors .Business Process Management Journal, 1999,l5: 36
6 Arie Halachmi, Tony Bovaird. Process Reengineering in the Public Sector: Learning Some Private Sector Lessons, 1997
7 McAdam, R., Mitchel, Development of a Business Process Re-engineering Model Applicable to the Public Sector. Total Quality Management, 1998 ,9: 16
8靳永翥,杨道田.“政府再造”理论及其于中国改革适用性的理性思辨.云南行政学院学报, 2009, (6):45
9陈通,王伟.西方政府再造对我们建立现代服务型政府的借鉴研究.西北工业大学学报(社会科学版), 2006, 26(3):9
10叶勇.政府流程再造的概念约定.福州大学学报(哲学社会科学版),2009(2):29~31
11李庆钧.政府流程再造的原则与模式分析.行政论坛, 2008(6):12
12陈明亮.中国电子政务建设模式和政府流程再造探讨.浙江大学学报(人文社会科学版), 2003,33(4):142
13李志刚.论电子政务发展与政府流程再造的关系.理论与改革, 2005(5):34~35
14郑明芬,陈伟东.政府流程再造:社区公共管理改革的路径选择——以W市J区为分析对象.行政论坛, 2009, 16(2):94
15金竹青.中国政府流程再造之问题与挑战分析.云南行政学院学报, 2008(5):98~100
16赵莹.政府流程再造及其在我国的实践意义.法制与社会, 2008(4):161
17 D. Osborne, T Gaebler, Reinventing Government: How the Entrepreneurial Sprit Is Transforming the Public Sector From the Schoolhouse, City Hall to thePentagon, Reading, Mass: Addison Wesley. 1992, 5
18 [美]戴维·奥斯本,彼德·普拉斯特里克.摒弃官僚制:政府再造的五项战略.北京:中国人民大学出版社, 2002
19拉塞尔·M·林登.无缝隙政府.北京:中国人民大学出版社, 2002
20 [美]罗伯特·B·丹哈特,珍妮特·V·丹哈特.新公共服务:服务而非掌舵.中国行政管理, 2002,(10)
21 Michael Hammer,“Reengineering work: don’t automate, obliterate”Harvard Business Review,July-August,1990
22 Hammer, M.Champy, Reengineering the Corporation: A Manifesto for Business Revolution. Nicholas Brealey Publishing,1993
23 Davenport,T.H, Short,J.E. The new industrial engineering:information technology and business process redesign .Sloan Management Review,1991
24刘熙瑞.服务型政府——经济全球化背景下中国政府改革的目标选择中国行政管理, 2002 ,(7)
25张康之.限制政府规模的理念.行政论坛2000,(4) :16
26张再生,杨勇.新公共管理视角下的中国服务型政府建设.东北大学学报(社科版),2009,2(11):140~141
27宋义.电子政务视角下的政府流程再造研究.重庆:重庆大学, 2008
28姜晓萍.政府流程再造的基础理论与现实意义.中国行政管理, 2006(5):38~39
29李庆钧.政府流程再造的原则与模式分析.行政论坛, 2008(6):13
30 [美]丹·迪芒塞斯库等.精干型企业.上海:上海人民出版社, 1999
31胡德平.政府流程再造的理论探讨及其实践路径.四川行政学院学报, 2006(4):15
32 Stemberger, M. I, Kovacic,i A, Jaklic. A Methodology for Increasing Business Process Maturity in Public Sector. Interdisciplinary Journal of Information, Knowledge, and Management, 2007. 2: 124
33 Heeks, R.B.E-government: An International Text on Public Sector Information System, Sage, London
34董新宇,苏竣.电子政务与政府流程再造.兼谈公共管理, 2004,1(4):4
35 National Performance Review,“From Red Tape to Results :Greating a Government That Works Better and Costs Less”Government Printing Office,1993
36周姗姗.浅析电子政务对政府流程再造的影响.时代经贸, 2008(6):22
37 [美]史蒂文科恩.新有效公共管理者——在变革政府中追求成功.北京:中国人民大学出版社, 2001:102.
38杨莹.浅谈我国政府绩效管理存在的问题及其应对措施.现代商业, 2009(36):190
39刘熙瑞.服务型政府:经济全球化背景下中国政府改革的目标选择.中国行政管理, 2002(7):5~7
40储济安.政府流程再造与服务型政府的构建.和田师范专科学校学报(汉文综合版),2005,25(5):16
41叶勇.我国政府流程再造的现实困境与发展策略.中南大学学报(社会科学版) , 2007,13(2):140
42 [美]J·佩帕德, P·罗兰.业务流程再造精要.高俊山译,北京:中信出版社, 2003:191~205
43李庆钧.政府流程再造的原则与模式分析.行政论坛, 2008(6):14
44陈航.我国地方服务型政府流程再造研究.大连:大连理工大学
45宋义.电子政务视角下的政府流程再造研究.重庆:重庆大学, 2008. 28~30
46赵莹.政府流程再造及其在我国的实践意义.法制与社会, 2008(4):161
2 David Osborne , Peter Plastrik. Banishing Bureaucracy: The Five Strategies for Reinventing Government. New York: the Penguin Group. 1997
3 Russell M. Linden. A Practical Guide to Re-Engineering in the Public Sector . New York, 2002
4吴琼恩.公共管理.台湾智胜文化实业有限公司. 2001.9:3~18
5 McAdam R, Donaghy. Business Process Re-engineering in the Public Sector A Study of Staff Perceptions and Critical Success Factors .Business Process Management Journal, 1999,l5: 36
6 Arie Halachmi, Tony Bovaird. Process Reengineering in the Public Sector: Learning Some Private Sector Lessons, 1997
7 McAdam, R., Mitchel, Development of a Business Process Re-engineering Model Applicable to the Public Sector. Total Quality Management, 1998 ,9: 16
8靳永翥,杨道田.“政府再造”理论及其于中国改革适用性的理性思辨.云南行政学院学报, 2009, (6):45
9陈通,王伟.西方政府再造对我们建立现代服务型政府的借鉴研究.西北工业大学学报(社会科学版), 2006, 26(3):9
10叶勇.政府流程再造的概念约定.福州大学学报(哲学社会科学版),2009(2):29~31
11李庆钧.政府流程再造的原则与模式分析.行政论坛, 2008(6):12
12陈明亮.中国电子政务建设模式和政府流程再造探讨.浙江大学学报(人文社会科学版), 2003,33(4):142
13李志刚.论电子政务发展与政府流程再造的关系.理论与改革, 2005(5):34~35
14郑明芬,陈伟东.政府流程再造:社区公共管理改革的路径选择——以W市J区为分析对象.行政论坛, 2009, 16(2):94
15金竹青.中国政府流程再造之问题与挑战分析.云南行政学院学报, 2008(5):98~100
16赵莹.政府流程再造及其在我国的实践意义.法制与社会, 2008(4):161
17 D. Osborne, T Gaebler, Reinventing Government: How the Entrepreneurial Sprit Is Transforming the Public Sector From the Schoolhouse, City Hall to thePentagon, Reading, Mass: Addison Wesley. 1992, 5
18 [美]戴维·奥斯本,彼德·普拉斯特里克.摒弃官僚制:政府再造的五项战略.北京:中国人民大学出版社, 2002
19拉塞尔·M·林登.无缝隙政府.北京:中国人民大学出版社, 2002
20 [美]罗伯特·B·丹哈特,珍妮特·V·丹哈特.新公共服务:服务而非掌舵.中国行政管理, 2002,(10)
21 Michael Hammer,“Reengineering work: don’t automate, obliterate”Harvard Business Review,July-August,1990
22 Hammer, M.Champy, Reengineering the Corporation: A Manifesto for Business Revolution. Nicholas Brealey Publishing,1993
23 Davenport,T.H, Short,J.E. The new industrial engineering:information technology and business process redesign .Sloan Management Review,1991
24刘熙瑞.服务型政府——经济全球化背景下中国政府改革的目标选择中国行政管理, 2002 ,(7)
25张康之.限制政府规模的理念.行政论坛2000,(4) :16
26张再生,杨勇.新公共管理视角下的中国服务型政府建设.东北大学学报(社科版),2009,2(11):140~141
27宋义.电子政务视角下的政府流程再造研究.重庆:重庆大学, 2008
28姜晓萍.政府流程再造的基础理论与现实意义.中国行政管理, 2006(5):38~39
29李庆钧.政府流程再造的原则与模式分析.行政论坛, 2008(6):13
30 [美]丹·迪芒塞斯库等.精干型企业.上海:上海人民出版社, 1999
31胡德平.政府流程再造的理论探讨及其实践路径.四川行政学院学报, 2006(4):15
32 Stemberger, M. I, Kovacic,i A, Jaklic. A Methodology for Increasing Business Process Maturity in Public Sector. Interdisciplinary Journal of Information, Knowledge, and Management, 2007. 2: 124
33 Heeks, R.B.E-government: An International Text on Public Sector Information System, Sage, London
34董新宇,苏竣.电子政务与政府流程再造.兼谈公共管理, 2004,1(4):4
35 National Performance Review,“From Red Tape to Results :Greating a Government That Works Better and Costs Less”Government Printing Office,1993
36周姗姗.浅析电子政务对政府流程再造的影响.时代经贸, 2008(6):22
37 [美]史蒂文科恩.新有效公共管理者——在变革政府中追求成功.北京:中国人民大学出版社, 2001:102.
38杨莹.浅谈我国政府绩效管理存在的问题及其应对措施.现代商业, 2009(36):190
39刘熙瑞.服务型政府:经济全球化背景下中国政府改革的目标选择.中国行政管理, 2002(7):5~7
40储济安.政府流程再造与服务型政府的构建.和田师范专科学校学报(汉文综合版),2005,25(5):16
41叶勇.我国政府流程再造的现实困境与发展策略.中南大学学报(社会科学版) , 2007,13(2):140
42 [美]J·佩帕德, P·罗兰.业务流程再造精要.高俊山译,北京:中信出版社, 2003:191~205
43李庆钧.政府流程再造的原则与模式分析.行政论坛, 2008(6):14
44陈航.我国地方服务型政府流程再造研究.大连:大连理工大学
45宋义.电子政务视角下的政府流程再造研究.重庆:重庆大学, 2008. 28~30
46赵莹.政府流程再造及其在我国的实践意义.法制与社会, 2008(4):161