协作性公共管理：理念、结构与过程

发布时间：2018-04-21 17:17

本文选题：协作性公共管理 + 边界管理　；参考：《上海交通大学》2012年博士论文

【摘要】：随着信息和通讯技术的发展，当今社会逐步进入了网络化时代，公民社会发展迅速，第三部门成长壮大，非盈利组织发挥越来越重要的作用，超越组织边界的复杂性问题丛生，政府的管理模式从传统的统治走向治理，社会治理的主体从以政府为主逐渐转向公共、私人和非营利共同参与的合作治理模式。Qangos、网络、伙伴关系在公共部门的公共服务供给中已成普遍的结构形式和制度安排。公共管理人员逐渐发现，他们不是单独地作为单一组织的领导，而是在通过相互协调和合作，与其他部门、团体与公民共同工作。管理方式和领导方式从传统的命令——服从模式逐渐转向谈判——协商模式，组织形式从科层制逐渐转向网络化，管理范围从传统的单一组织内事务转向跨部门议题的处理，公共政策和公共议题的复杂性、跨域性、跨边界性特征越来越突出，跨组织、跨边界合作议题逐渐成为公共管理研究人员和实践者的重点关注焦点，协作性公共管理模式应运而生。论文采用文献研究法、比较研究法和案例研究法等研究方法，将协作性公共管理模式作为研究对象，探讨协作性公共管理模式兴起的原因和背景，厘清协作性公共管理的概念及定位，评述协作性公共管理的核心内容，包括价值理念、组织结构、动态过程，并从行政思想史的高度评价反思协作性公共管理模式的创新与局限。整篇文章是按照协作性公共管理模式“是什么？”——“为什么？”——“如何做？”的思路和逻辑演进下来的。协作性公共管理兴起的原因复杂，主要有三个方面：（1）风险社会带来的各种疑难问题；（2）信息与通信技术的发展；（3）新公共管理运动带来的拥挤国家和机构碎片化等弊端。组织交换理论、交易成本理论、资源依赖理论、网络治理理论和府际管理理论从不同层面和角度为协作性公共管理模式的构建提供了理论养分。作为对传统官僚体制和新公共管理运动的反思与修正，协作性公共管理是在治理理论的基础上发展起来的，，解决边界问题是其逻辑起点，合作理性是其理性基础，创造和增进公共价值是其基本追求，协作型组织是其基本组织结构。协作性公共管理强调横向、纵向和跨部门三个维度上的协作，包括政府组织内部的纵向协作，政府内部以及不同部门之间的横向协作，以及政府部门、私部门和第三部门及公民之间的跨部门跨组织协作。协作性公共管理在组织结构、管理过程、领导方式、权力关系等方面与传统官僚体制下的单组织安排都具有不同的特点。组织形态呈现网络化，而不是科层制；管理过程强调谈判、沟通、协议达成和冲突管理，而不是简单的命令链条的执行；领导方式强调催化型和变革型领导，而不仅仅是完成政治命令；权力关系强调平等的伙伴关系，而不是自上而下的从属关系。相对于新公共管理理论，协作性公共管理是新公共管理的下一步。协作性公共管理强调合作与协作，而不是竞争和对顾客的回应；强调公共价值的创造与增进而不是对经济价值的单向追求；强调政府与企业、NGO和公民的互动，而不是政府单向的合同承包与民营化。协作性公共管理和协作治理，作为一种工具理性，享有共同的过程价值，比如透明性、问责性和信任，协作性公共管理是协作治理在操作层面上的延伸。协作性公共管理更加关注地方层次上的议题，而协作治理更加关注国家层次和国际层次上的议题；协作性公共管理更多关注组织层面上的组织相互依赖性，强调运作层面上的过程管理、政策工具的选择，而协作治理更多强调公民参与和多中心治理主体；协作性公共管理过程中，公共部门在组织间协作网络中处于核心地位；而协作治理过程中，政府机构正在逐步失去其支配地位，逐渐成为网络中相互依赖的参与者之一，与其他参与者的地位差别越来越小。协作性公共管理模式具有资源共享、效率提升、服务协同和无缝隙化、参与方互惠互利等协作优势，同时也普遍存在协作惰性和协作悖论。公共服务中的协作安排的效果及协作性公共管理的能力受参与者个体因素、组织因素和社会因素等众多因素影响。协作性公共管理模式效果到底如何在学界深受质疑，协作性公共管理模式存在如下局限：创新性缺乏、组织冲突的协调难度加大、协作成本问题突出、协作面临问责困境以及协作惰性和协作悖论的存在等。协作性公共管理模式对中国的多元化公共服务供给、大部制改革、跨区域公共事务、公务员制度改革等具有重要意义。
[Abstract]:With the development of information and communication technology, today's society has gradually entered the era of network, the civil society has developed rapidly, the third sector has grown, non-profit organizations play a more and more important role, surpass the complexity of the organizational boundaries, the government management mode from the traditional rule to governance, the main body of social governance is from the The government has gradually shifted to public, private and non-profit cooperative governance models.Qangos, networks, and partnerships have become common structural forms and institutional arrangements in public service supply. Public managers have gradually found that they are not alone as leaders of a single organization, but are coordinated by each other. And cooperation, working with other departments, groups and citizens. Management and leadership are gradually shifting from the traditional command to the model to negotiation - negotiation model, organizational form gradually turning from bureaucracy to network, management range from traditional single organization to cross sector issues, public policy and public The complexity, cross domain and cross boundary characteristics are becoming more and more prominent. Cross organization and cross boundary cooperation have gradually become the focus of public management researchers and practitioners, and collaborative public management model has emerged.
The paper adopts the methods of literature research, comparative research method and case study method. The cooperative public management model is taken as the research object, the reasons and background of the rise of cooperative public management model are discussed, the concept and orientation of cooperative public management are clarified, and the core content of cooperative public management is commented, including the value concept and organization. Structure, dynamic process, and rethink the innovation and limitation of the cooperative public management model from the high evaluation of the history of administrative thought. The whole article is based on the idea and logic of "what?" - "why?" - "how to do" in accordance with the cooperative public management model.
The reasons for the rise of collaborative public management are complex, mainly in three aspects: (1) various difficult problems brought by the risk society; (2) the development of information and communication technology; (3) the malpractice of the crowded country and mechanism brought by the new public management movement. Intergovernmental management theory provides theoretical nutrition for the construction of collaborative public management mode from different levels and angles.
As a reflection and correction of the traditional bureaucratic system and the movement of new public management, cooperative public management is developed on the basis of the theory of governance. The solution to the boundary problem is its logical starting point. Cooperative rationality is its rational basis. The creation and promotion of public value is its basic pursuit, cooperative organization is its basic organizational structure. Sexual public management emphasizes three dimensions of horizontal, vertical, and cross sectoral collaboration, including vertical collaboration within government organizations, horizontal collaboration within the government and between different departments, and interdepartmental collaboration between government departments, private sector and third departments and citizens. Collaborative public management in organizational structure, management process, The way of leadership and power relations have different characteristics from the single organization arrangement under the traditional bureaucratic system. The form of organization is networked rather than bureaucratic; the management process emphasizes negotiation, communication, agreement and conflict management, rather than a simple chain of commands; leadership emphasizes catalytic and transformational leadership. Rather than just completing political orders; power relations emphasize equal partnership rather than top-down affiliation. Relative to the new public management theory, collaborative public management is the next step in new public management. Collaborative public management emphasizes cooperation and collaboration rather than competition and response to customers; it emphasizes public value. The creation and promotion rather than the one-way pursuit of economic value; emphasis on the interaction between the government and the enterprise, the NGO and the citizens, not the unilateral contract and privatization of the government. Cooperative public management and cooperative governance, as a tool reason, enjoy the common process value, such as transparency, accountability and trust, and cooperative public management. Collaborative governance extends at the operational level. Collaborative public management pays more attention to issues on the local level, while collaborative governance pays more attention to issues on the national level and in the international level; collaborative public management pays more attention to organizational interdependence on the organizational level, emphasizes process management at the level of transportation, and the choice of policy tools. Cooperative governance emphasizes more on citizen participation and multi center governance; in the process of collaborative public management, the public sector is at the core of the inter organizational collaboration network. In the process of collaborative governance, the government is gradually losing its dominant position and gradually becoming one of the interdependent participants in the network and other participants. The difference in status is getting smaller and smaller.
Cooperative public management model has resources sharing, efficiency promotion, service synergy and seamless integration, participation and mutual benefit, and cooperation inertia and collaboration paradox. The effect of cooperation arrangement in public service and the ability of cooperative public management are subject to individual factors, organizational factors and social factors. The effect of the cooperative public management model is deeply questioned in the academic world. There are some limitations in the cooperative public management model: lack of innovation, the coordination difficulty of organizational conflict, the outstanding cooperation cost, the cooperation facing the dilemma of accountability and the existence of coordination inertia and cooperation paradox. The management mode is of great significance to China's diversified public service supply, the reform of the bulk system, the cross regional public affairs, and the reform of the civil service system.

【学位授予单位】：上海交通大学
【学位级别】：博士
【学位授予年份】：2012
【分类号】：D035

【参考文献】