任务模糊性视角下科层制变革的不同走向——基于前沿文献的评析
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摘要
随着国家治理目标日益多元复杂,科层组织的任务模糊性与日俱增,成为全球公共部门不可忽视的任务情境。这一外部条件的改变增加了政府管理及政策执行的难度,挑战了科层管理基于确定性的有效性基础,并引发科层组织自我重塑。在新情境下,应对模糊性的不同价值立场决定了科层制变革的不同走向。主张消除模糊性的指标体制通过提供一套内部控制-激励系统而实现了科层制的自我强化。提倡利用模糊性的刻意模糊化管理则将公共部门推向精细化科层制变革。一方面,科层制具有根据不同管理意图向不同方向变革的结构韧性;另一方面,指向过程、具有灵活性、强调定性分析的精细化科层运作可能是未来应对任务模糊性的更优选择。
As national governance objectives become more complex and multiply,the task ambiguity faced by bureaucratic organizations is now becoming an inevitable scenario for public agencies around the world. External changes have increased the difficulty of management and execution and challenged government efficacy based on certainty of bureaucratic management,which triggers the restructuring of bureaucratic organization. This study found that the different standpoints in dealing with ambiguity determine the different pathways of bureaucratic reform. The target system which votes for elimination of ambiguity is creating an internal control-incentive system to strengthen the bureaucracy. The planned ambiguity theorists who advocate using ambiguity for management purpose are driving the reform of elaborate bureaucracy. For one thing,bureaucracy has a malleable structure which enables it to adapt to different managerial purposes. For another, it is believed that elaborate bureaucracy may be a better way to deal with ambiguity by focusing on the process,increasing discretion,and putting more emphasis on qualitative analysis.
As national governance objectives become more complex and multiply,the task ambiguity faced by bureaucratic organizations is now becoming an inevitable scenario for public agencies around the world. External changes have increased the difficulty of management and execution and challenged government efficacy based on certainty of bureaucratic management,which triggers the restructuring of bureaucratic organization. This study found that the different standpoints in dealing with ambiguity determine the different pathways of bureaucratic reform. The target system which votes for elimination of ambiguity is creating an internal control-incentive system to strengthen the bureaucracy. The planned ambiguity theorists who advocate using ambiguity for management purpose are driving the reform of elaborate bureaucracy. For one thing,bureaucracy has a malleable structure which enables it to adapt to different managerial purposes. For another, it is believed that elaborate bureaucracy may be a better way to deal with ambiguity by focusing on the process,increasing discretion,and putting more emphasis on qualitative analysis.
引文
蒂莫西·A.O.恩迪科特(2010).法律中的模糊性.程朝阳译.北京:北京大学出版社.
郭小聪、宁超(2017).模糊治理与策略性回应:社区治理主动性的一种解释.国家行政学院学报,3:71-76.
胡业飞、崔杨杨(2015).模糊政策的政策执行研究——以中国社会化养老政策为例.公共管理学报,2:93-105.
李声宇(2016).目标模糊如何影响公共组织的研究述评.公共行政评论,9:164-188.
李妮(2018).模糊性政治任务的科层运作——A县政府是如何建构“创新”政绩的?.公共管理学报,1:1-11.
孙志建(2011).政府治理的工具基础:西方政策工具理论的知识学诠释.公共行政评论,3:67-103.
孙志建(2012).“模糊性治理”的理论系谱及其诠释:一种崭新的公共管理叙事.甘肃行政学学报,3:55-71.
W.理查德·斯科特、杰拉尔德·F.戴维斯(2011).组织理论:理性、自然与开放系统的视角.高俊山译.北京:中国人民大学出版社.
Abma,T.& Noordegraaf,M.(2003).Public Managers Amidst Ambiguity:Towards a Typology of Evaluative Practices in Public Management.Evaluation,9(3):285-306.
Agars,M.D.& Kaufman,J.C.(2008).Facing Ambiguity in Organizational Creativity Research:Choices Made in the Mud.Multi-Level lssues,7(5):95-103.
Allison,G.T.(1983).Public & Private Management:Are They Fundamentally Alike in All Unimportant Respects?.In James L.P.& Kenneth L.K.Eds.Public Management.Palo Alto:Mayfield.
Andrews,R.(2010),Organizational Structure and Public Service Performance.In Walker,R.M.,Boyne,G.A.& Brewer,G.A.Eds.Public Management and Performance.New York:Cambridge University Press.
Bauer,J.C.& Simmons,P.R.(2000).Role Ambiguity:A Review and Intergration of the Literature.Journal of Modern Business,3(1):41-47.
Behn,R.(2003).Why Measure Performance?Different Purposes Require Didfferent Measures.Public Administration Review.63(3):586-606.
Bevan,R.G.& Hood,C.(2006).What's Measured Is What Matters:Targets & Gaming in the English Public Health Care System.Public Administration.84(3):517-538.
Bernheim,B.& Whinston,M.D.(1998).Incomplete Contracts and Strategic Ambiguity.The American Economic Review.88(4):902-932.
Blau,P.M.(1955).The Dynamics of Bureaucracy:A Study of Interpersonal Relations.Chicago:University of Chicago Press.
Boyne,G.A.(2010).Performance Management:Does It Work?.In Walker,R.M.,Boyne,G.A.& Brewer,G.A.Eds.Public Management and Performance.New York:Cambridge University Press.
Bozeman,B.M.(2000).Bureaucracy and Red Tape.Upper Saddle River,NJ:Prentice Hall.
Bromberg,G.(2009).Performance Measurement:A System With A Purpose or A Purposeless System?.Public Performance and Management Review,33(2):214-221.
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Carlisle,C.(2004).How the Government Broke Its Bristol Inquiry Pledge.Health Service Journal,4(1):12-13.
Chan,H.& Gao,J.(2009).Putting the Cart before the Horse?Accountability of Performance.Australian Journal of Public Administration,68(1):51-68.
Courty,P.& Marschke,G.(2007).Making Government Accountable:Lessons from a Federal Job Training Program.Public Administration Review,67(6):904-16.
Chun,Y.H.& Rainey,H.G.(2005a).Goal Ambiguity and Organizational Performance in U.S.Federal Agencies.Journal of Public Administration Research & Theory,15(4):529-557.
Chun,Y.H.& Rainey,H.G.(2005b).Goal Ambiguity in U.S.Federal Agencies.Journal of Disability Policy Studies,15(1):221-230.
Christiansen,P.M.& Klitgaard,M.B.(2010).Behind the Veil of Vagueness:Success and Failure in Institutional Reforms.Journal of Public Policy,30(2):183-200.
Dahl,R.A.& Lindblom,C.E.(1953).Politics,Economics and Welfare.New York:Harper.
Dalton,D.R.,Todor,W.D.,Spendoloni,M.J.,Fielding,G.J.& LYman P.(1980).Organizational Structure & Performance:A Critical Review.Academy of Management Review,5(1):49-64.
Davenport,S.& Leitch,S.(2005).Circuits of Power in Practice:Strategic Ambiguity as Delegation of Authority.Organization Studies,26(11):1603-1623.
Denhardt,R.B.(1984).Theories of Public Organization.California:Brooks/Cole Publishing Company.
Drucker,P.F.(1954).The Practice of Management.New York:Harper & Brothers.
Drucker,P.F.(1980).The Deadly Sins in Public Administration.Public Administration Review,40(2):103-106.
Downs,A.(1967).Inside Bureaucracy.Boston:Little Brown.
Edelman,M.(1977).Political language:Words that Succeed & Policies that Fail.New York:Academic Press.
Eisenberg,E.M.(1984).Ambiguity as Strategy in Organizational Communication.Communication Monographs,51(3):227-242.
Frederickson,D.G.& Frederickson,H.G.(2006).Measuring the Performance of the Hollow State.Washington,DC:Geogetown University Press.
Grossman,S.J.& Hart,O.(1986).The Cost & Benefits of Ownership:A Theory of Vertical and Lateral Integration.Journal of Political Economy,94(4):691-719.
Grizzle,G.A.(2002).Performance Measurement & Dysfunction:The Dark SIde of Quantifying Work.Public Performance & Mangement Review,25(4):363-369.
Hall,R.H.(1982).Organizations:Structure and Process.London:Prentice-Hall.
Hood,C.(1991).A Public Management for All Season?.Public Administration,69(1):3-19.
Hood,C.(1996).Exploring Variations in Public Management Reform of the 1980s.In Bekke,H.A.,Perry,J.L.& Toonen,T.A.Eds.Civil Service Systems in Comparative Perspective.Indiana:Bloomington.
Hood,C.(2006).Gaming in the Target World:Managing British Public Services.Public Administration Review,66(4):515-521.
Hood,C.(2007).Public Service Management by Numbers:Why Does it Vary?Where Has it Come From?What Are the Gaps and the Puzzles?.Public Money & Management,27(2):95-102.
Hood,C.(2012).Public Management by Numbers as a Performance-Enhancing Drug:Two Hypothesis.Public Administration Review,72(1):85-92.
Hughes,O.E.(2003).Public Management and Administration.Basingstoke:Palgrave Macmillan.
Indik,B.P.(1965).Organization Size and Member Participation:Some Empirical Tests of Alternative Explanations.Human Relations,18(4):339-350.
Jesen,M.C.& Meckling,W.H.(1976).Theory of the Firm:Managerial Behavior.Agency Costs & Ownership Structure.Journal of Financial Economics,3(4):306-360.
Kohn,A.(1993).Why Incentive Plans Cannot Work?.Harvard Business Review,71(5):54-60.
Lee,T.W.,Edwin A.,Locke,E.A.& Gary,P.L.(1989).Goal Setting Theory and Job Performance.In Lawrence A.P.Eds.Goal Concepts in Personality and Social Psychology.Hillsdale:Lawrence Erlbaum.
Lindblom,C.E.(1977).Politics & Markets.New York:Basic Books.
Locke,E.A.& Latham,G.P.(2002).Building a Practically Useful Theory of Goal Setting & Task Motivation:A 35 Year Odyssey.American Psychologist,57(9):705-717.
March,J.G.(1978).Bounded Rationality,Ambiguity,and the Engineering of Choice.Journal of Economics,9(2):587-608.
March,J.G.& Olsen,J.P.(1976).Ambiguity and Choice in Organizations.Bergen:Universitetsforlaget.
March,J.G.& Olsen,J.P.(1989).Rediscovering Institutions:The Organizational Basis of Politics.New York:Free Press.
March,J.G.& Simon,H.A.(1993).Organizations.New York:Blackwell Business.
March,J.G.(1994).A Primer on Decision Making:How Decisions Happen.New York:Free Press.
Matland,R.(1995).Synthesizing the Implementation Literature:The Ambiguity-Conflict Model of Policy Implementation.Journal of Public Administration Research and Theory.5(2):145-174.
McLaughlin,K.J.(1988).Aspects of Tournament Models:A Survey.Research in Labour Economics,9:225-256.
McLaughlin,E.,Muncie,J.& Hughes,G.(2001).The Permanent Revolution:New Labour,New Public Management,and The Modernization of Criminal Justice.Criminology & Criminal Justice,1:301-318.
Meyer,M.W.& Gupta,V.(1994).The Performance Paradox.Research in Organizational Behavior,16:309-369.
Moynihan,D.P.(2008).The Dynamics of Performance Management:Constructing Information and Reform.Washington,DC:Georgetown University Press.
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Noordegraaf,K.(2008).Meanings of Measurement.Public Management Review,10(2):221-239.
Noordegraaf,M.& Abma,T.(2003).Management by Measurement?Public Mangement Practices Admist Ambiguity.Public Administration,81(4):853-871.
Norman,R.(2007).Managing for Outcomes while Accounting for Outputs.Public Performance and Management Review,30(4):536-549.
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Perrow,C.B.(1961).The Analysis of Goals in Complex Organizations.American Sociological Review,26(6):688-699.
Rainey,H.G.& Bozeman,B.(2000).Comparing Public and Private Organization:Empirical Research and the Power of the A Priori.Journal of Public Administration Research and Theory,10(2):447-470.
Rainey,H.G.& Jung,C.S.(2010).Extending Goal Ambiguity Research in Government:From Organizational Goal Ambiguity to Programme Goal Ambiguity.In Walker,R.M.,Boyne,G.A.& Brewer,G.A.Eds.Public Management and Performance.New York:Cambridge University Press.
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郭小聪、宁超(2017).模糊治理与策略性回应:社区治理主动性的一种解释.国家行政学院学报,3:71-76.
胡业飞、崔杨杨(2015).模糊政策的政策执行研究——以中国社会化养老政策为例.公共管理学报,2:93-105.
李声宇(2016).目标模糊如何影响公共组织的研究述评.公共行政评论,9:164-188.
李妮(2018).模糊性政治任务的科层运作——A县政府是如何建构“创新”政绩的?.公共管理学报,1:1-11.
孙志建(2011).政府治理的工具基础:西方政策工具理论的知识学诠释.公共行政评论,3:67-103.
孙志建(2012).“模糊性治理”的理论系谱及其诠释:一种崭新的公共管理叙事.甘肃行政学学报,3:55-71.
W.理查德·斯科特、杰拉尔德·F.戴维斯(2011).组织理论:理性、自然与开放系统的视角.高俊山译.北京:中国人民大学出版社.
Abma,T.& Noordegraaf,M.(2003).Public Managers Amidst Ambiguity:Towards a Typology of Evaluative Practices in Public Management.Evaluation,9(3):285-306.
Agars,M.D.& Kaufman,J.C.(2008).Facing Ambiguity in Organizational Creativity Research:Choices Made in the Mud.Multi-Level lssues,7(5):95-103.
Allison,G.T.(1983).Public & Private Management:Are They Fundamentally Alike in All Unimportant Respects?.In James L.P.& Kenneth L.K.Eds.Public Management.Palo Alto:Mayfield.
Andrews,R.(2010),Organizational Structure and Public Service Performance.In Walker,R.M.,Boyne,G.A.& Brewer,G.A.Eds.Public Management and Performance.New York:Cambridge University Press.
Bauer,J.C.& Simmons,P.R.(2000).Role Ambiguity:A Review and Intergration of the Literature.Journal of Modern Business,3(1):41-47.
Behn,R.(2003).Why Measure Performance?Different Purposes Require Didfferent Measures.Public Administration Review.63(3):586-606.
Bevan,R.G.& Hood,C.(2006).What's Measured Is What Matters:Targets & Gaming in the English Public Health Care System.Public Administration.84(3):517-538.
Bernheim,B.& Whinston,M.D.(1998).Incomplete Contracts and Strategic Ambiguity.The American Economic Review.88(4):902-932.
Blau,P.M.(1955).The Dynamics of Bureaucracy:A Study of Interpersonal Relations.Chicago:University of Chicago Press.
Boyne,G.A.(2010).Performance Management:Does It Work?.In Walker,R.M.,Boyne,G.A.& Brewer,G.A.Eds.Public Management and Performance.New York:Cambridge University Press.
Bozeman,B.M.(2000).Bureaucracy and Red Tape.Upper Saddle River,NJ:Prentice Hall.
Bromberg,G.(2009).Performance Measurement:A System With A Purpose or A Purposeless System?.Public Performance and Management Review,33(2):214-221.
Campbell,J.P.,David,A.B.,Norman G.P.& Marvin D.D.(1974).The Measurement of Organizational Effectiveness:A Review of the Relevant Research & Opinion.San Diego:Report of Navy Personnel Research and Development Center.
Carlisle,C.(2004).How the Government Broke Its Bristol Inquiry Pledge.Health Service Journal,4(1):12-13.
Chan,H.& Gao,J.(2009).Putting the Cart before the Horse?Accountability of Performance.Australian Journal of Public Administration,68(1):51-68.
Courty,P.& Marschke,G.(2007).Making Government Accountable:Lessons from a Federal Job Training Program.Public Administration Review,67(6):904-16.
Chun,Y.H.& Rainey,H.G.(2005a).Goal Ambiguity and Organizational Performance in U.S.Federal Agencies.Journal of Public Administration Research & Theory,15(4):529-557.
Chun,Y.H.& Rainey,H.G.(2005b).Goal Ambiguity in U.S.Federal Agencies.Journal of Disability Policy Studies,15(1):221-230.
Christiansen,P.M.& Klitgaard,M.B.(2010).Behind the Veil of Vagueness:Success and Failure in Institutional Reforms.Journal of Public Policy,30(2):183-200.
Dahl,R.A.& Lindblom,C.E.(1953).Politics,Economics and Welfare.New York:Harper.
Dalton,D.R.,Todor,W.D.,Spendoloni,M.J.,Fielding,G.J.& LYman P.(1980).Organizational Structure & Performance:A Critical Review.Academy of Management Review,5(1):49-64.
Davenport,S.& Leitch,S.(2005).Circuits of Power in Practice:Strategic Ambiguity as Delegation of Authority.Organization Studies,26(11):1603-1623.
Denhardt,R.B.(1984).Theories of Public Organization.California:Brooks/Cole Publishing Company.
Drucker,P.F.(1954).The Practice of Management.New York:Harper & Brothers.
Drucker,P.F.(1980).The Deadly Sins in Public Administration.Public Administration Review,40(2):103-106.
Downs,A.(1967).Inside Bureaucracy.Boston:Little Brown.
Edelman,M.(1977).Political language:Words that Succeed & Policies that Fail.New York:Academic Press.
Eisenberg,E.M.(1984).Ambiguity as Strategy in Organizational Communication.Communication Monographs,51(3):227-242.
Frederickson,D.G.& Frederickson,H.G.(2006).Measuring the Performance of the Hollow State.Washington,DC:Geogetown University Press.
Grossman,S.J.& Hart,O.(1986).The Cost & Benefits of Ownership:A Theory of Vertical and Lateral Integration.Journal of Political Economy,94(4):691-719.
Grizzle,G.A.(2002).Performance Measurement & Dysfunction:The Dark SIde of Quantifying Work.Public Performance & Mangement Review,25(4):363-369.
Hall,R.H.(1982).Organizations:Structure and Process.London:Prentice-Hall.
Hood,C.(1991).A Public Management for All Season?.Public Administration,69(1):3-19.
Hood,C.(1996).Exploring Variations in Public Management Reform of the 1980s.In Bekke,H.A.,Perry,J.L.& Toonen,T.A.Eds.Civil Service Systems in Comparative Perspective.Indiana:Bloomington.
Hood,C.(2006).Gaming in the Target World:Managing British Public Services.Public Administration Review,66(4):515-521.
Hood,C.(2007).Public Service Management by Numbers:Why Does it Vary?Where Has it Come From?What Are the Gaps and the Puzzles?.Public Money & Management,27(2):95-102.
Hood,C.(2012).Public Management by Numbers as a Performance-Enhancing Drug:Two Hypothesis.Public Administration Review,72(1):85-92.
Hughes,O.E.(2003).Public Management and Administration.Basingstoke:Palgrave Macmillan.
Indik,B.P.(1965).Organization Size and Member Participation:Some Empirical Tests of Alternative Explanations.Human Relations,18(4):339-350.
Jesen,M.C.& Meckling,W.H.(1976).Theory of the Firm:Managerial Behavior.Agency Costs & Ownership Structure.Journal of Financial Economics,3(4):306-360.
Kohn,A.(1993).Why Incentive Plans Cannot Work?.Harvard Business Review,71(5):54-60.
Lee,T.W.,Edwin A.,Locke,E.A.& Gary,P.L.(1989).Goal Setting Theory and Job Performance.In Lawrence A.P.Eds.Goal Concepts in Personality and Social Psychology.Hillsdale:Lawrence Erlbaum.
Lindblom,C.E.(1977).Politics & Markets.New York:Basic Books.
Locke,E.A.& Latham,G.P.(2002).Building a Practically Useful Theory of Goal Setting & Task Motivation:A 35 Year Odyssey.American Psychologist,57(9):705-717.
March,J.G.(1978).Bounded Rationality,Ambiguity,and the Engineering of Choice.Journal of Economics,9(2):587-608.
March,J.G.& Olsen,J.P.(1976).Ambiguity and Choice in Organizations.Bergen:Universitetsforlaget.
March,J.G.& Olsen,J.P.(1989).Rediscovering Institutions:The Organizational Basis of Politics.New York:Free Press.
March,J.G.& Simon,H.A.(1993).Organizations.New York:Blackwell Business.
March,J.G.(1994).A Primer on Decision Making:How Decisions Happen.New York:Free Press.
Matland,R.(1995).Synthesizing the Implementation Literature:The Ambiguity-Conflict Model of Policy Implementation.Journal of Public Administration Research and Theory.5(2):145-174.
McLaughlin,K.J.(1988).Aspects of Tournament Models:A Survey.Research in Labour Economics,9:225-256.
McLaughlin,E.,Muncie,J.& Hughes,G.(2001).The Permanent Revolution:New Labour,New Public Management,and The Modernization of Criminal Justice.Criminology & Criminal Justice,1:301-318.
Meyer,M.W.& Gupta,V.(1994).The Performance Paradox.Research in Organizational Behavior,16:309-369.
Moynihan,D.P.(2008).The Dynamics of Performance Management:Constructing Information and Reform.Washington,DC:Georgetown University Press.
Mintzberg,H.(1989).The Structuring of Organizations.In Asch,D.& Bowman,C.Eds.Readings in Strategic Management.London:Palgrave.
Munro,R.(1995).Managing by Ambiguity:An Archaeology of the Social in the Absence of Management Accounting.Critical Perspectives on Accounting,6(5):433-448.
Noordegraaf,K.(2008).Meanings of Measurement.Public Management Review,10(2):221-239.
Noordegraaf,M.& Abma,T.(2003).Management by Measurement?Public Mangement Practices Admist Ambiguity.Public Administration,81(4):853-871.
Norman,R.(2007).Managing for Outcomes while Accounting for Outputs.Public Performance and Management Review,30(4):536-549.
Niskanen,R.(1971).Bureaucracy and Representative Government.Chicago:Aldine Atherton.
Olsen,J.P.(2006).Maybe It Is Time to Rediscover Bureaucracy.Journal of Public Administration Research and Theory,16(1):1-24.
Osborne,D.& Gaebler,T.(1992).Reinventing Government.London:Addison-Wesley.
Pandey,S.K.& Garnett,J.L.(2006).Exploring Public Sector Communication Performance:Testing a Model and Drawing Implications.Public Administration Review,66(1):37-51.
Perrow,C.B.(1961).The Analysis of Goals in Complex Organizations.American Sociological Review,26(6):688-699.
Rainey,H.G.& Bozeman,B.(2000).Comparing Public and Private Organization:Empirical Research and the Power of the A Priori.Journal of Public Administration Research and Theory,10(2):447-470.
Rainey,H.G.& Jung,C.S.(2010).Extending Goal Ambiguity Research in Government:From Organizational Goal Ambiguity to Programme Goal Ambiguity.In Walker,R.M.,Boyne,G.A.& Brewer,G.A.Eds.Public Management and Performance.New York:Cambridge University Press.
Rainey,H.G.& Jung,C.C.(2015).A Conceptual Framework for Analysis of Goal Ambiguity in Public Organization.Journal of Public Administration Research and Theory,25(1):71-99.
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