1、第四章 行政组织,主要内容及重点：,行政组织的含义、基本要素、特征、类型 行政组织结构 行政组织理论 行政组织设置的原则,一、行政组织概述：,、行政组织的涵义： 行政组织是静态结构和动态组织活动的统一。 就静态而言，有广义与狭义之分： 广义：指除政府行政组织之外，还包括立法、司法、企业、事业等部门及社会团体中具有行政性职能的机构。 狭义：专指为推行政务，依据宪法和法律组建的国家行政机关体系，它是国家机构的重要组成部分。（）,从四个不同角度理解：,静态的角度：“组织结构形式” 动态的角度：实现组织功能的活动过程 生态的角度：开放系统 心态的角度：形成的一种集体意识,、行政组织的构成要素：,组织目
2、标 机构设置 人员构成 权责体系 法规制度 物质因素,、行政组织的特性,政治性与社会性法制性与权威性系统性和动态性,、行政组织的类型,以上下级权限关系：集权制分权制 以各组织机构的职权性质与范围：层级制职能制 以组织行使最高决策的人数：首长制委员会制混合制,以组织的不同功能与作用：领导机构执行机构（职能机构）监督机构咨询机构信息机构办公机构（辅助机构）派出机构,领导机构：它是各级政府指挥与决策的中心，“中枢”。其作用是统筹全局。 执行机构（职能机构）它是在领导机构的领导下分管专业行政事务的机构。（执行性、专业性、局部性） 监督机构 咨询机构 信息机构 辅助机构 派出机构,派出机构：,它是一级政
3、府按管辖地区授权委派的代表机构。 行政公署 区公所 街道办事处,Public Enterprise (P94-99),Reasons for establishing public enterprise (P95-96): Rees argues that there are four reasons for the existence of public enterprise: To correct market failure. To alter the structure of pay-offs in an economy. To facilitate centralized long-
4、term economic planning. To change the nature of the economy, from capitalist to socialist.,To correct market failure,The first point refers to services, which are desired, but will not be adequately provided by the market. Market failure can occur for reasons of natural monopoly, restriction of comp
5、etition in some other way, externalities or spill-over effects on others and where the goods produced are to some degree public goods.,To alter the structure of pay-offs in an economy,The second point the structure of pay-offs means altering the benefits received by particular individuals or groups.
6、One way of altering pay-offs is the extensive cross-subsidization prevalent in public enterprise pricing.If rural electricity services were provided privately, consumers would either pay more, or the company might decide that providing the service was simply too expensive.,To facilitate centralized
7、long-term economic planning,The third point centralized long-term planning is a motivation used in some countries.Related to this is a general developmental role of public enterprise, in particular the public utility sector. In some sparsely settled countries like Australia and Canada , utilities we
8、re established in government hands from the beginning, due to the inability of private providers to make an economic returnmarkets were not capable of providing the necessary infrastructure. No one other than the government had the resources to carry out the development of key services.,To change th
9、e nature of the economy, from capitalist to socialist,The fourth point to change the economy from capitalist to socialist has been a major factor in some countries. In the United Kingdom, in the post-war period ,railways , steel and coal were nationalized so that the commanding heights of the econom
10、y were in government hands. Public enterprise had been regarded as a form of soft socialism.,(2) Kinds of Public Enterprise (P97-99):,Public utilities(P97) Land transport and postal service(P98) Enterprises in competitive environments (P99) Regulatory authorities (P99),Public utilities(P97),Public u
11、tilities provide services water, sewerage, electricity, gas, and telecommunications considered essential for the economy as a whole.This makes for two unusual features.(P97) First, the household connection means there is a real , or at least a tendency towards, natural monopoly. (P97) Secondly, the
12、essential nature of public utilities means the the services they supply are politically sensitive, with great disruption to the private economy and households resulting if supplies are interrupted.(P97),Land transport and postal service(P98),Land transport encompasses the various public transport sy
13、stem within and between cities and the postal service is still, almost everywhere, provided by government.but they do share some characteristics. First, both are essential services like public utilities, but, unlike them, they faced competition. Secondly, both public transport and postal services ha
14、ve a propensity for poor financial returns. If prices are raised or services cut, governments face substantial political costs.(P98),Enterprises in competitive environments (P99),These are government-owned trading enterprises which compete directly with private companies and in the same market. This
15、 category includes banks, insurance companies, airlines, oil companies, to name but a few.they are profitable and operate no differently from competitors Governments have involved themselves with enterprises in competitive environments for many reasons: When a company failed in the marketplace; To s
16、timulate competition; To maintain control of a strategic industry of other reasons discussed earlier. (P99),Regulatory authorities (P99),This group is certainly part of the public enterprise sector according to the definition used. Such bodies are government-owned and controlled, and finance their a
17、ctivities by the sale of commodities. The use of compulsory acquisition or compulsory purchase is what distinguishes this group of enterprises, as their main asset is the coercive power of government.,Summary,All the above categories show strong linkages between government ownership and government r
18、egulation. Regulation is an important characteristic of public enterprise. Public utilities may have a tendency to natural monopoly in most of their operations, but this was most often reinforced by a legislative monopoly as well. Part of the renewed political interest in public enterprise has been
19、a re-assessment of the nature and effects of the regulatory environment.(P99),二、行政组织结构：,行政组织结构：是指构成行政组织各要素的配合和排列组合方式。它包括行政组织各成员、单位、部门和层级之间的分工协作以及联系、沟通方式。行政组织的纵向结构行政组织的横向结构,、行政组织的纵向结构：,它又称为直线式结构，是纵向分工形成的行政组织的层级制。应注意以下两点： 第一，管理层次与管理幅度的关系。 第二，层次管理的原则。,管理层次与管理幅度,管理层次：是行政组织纵向结构的等级层次，即行政机关中设置多少等级的工作部门，这应由
20、行政机关的工作量来决定。 管理幅度：是指一级行政机关或一名上级领导者直接领导和指挥的下级单位或工作人员的数目。,层次管理的原则：,层次节制的原则只管一个层次的原则,、行政组织横向结构：,它又称为职能式结构，是横向分工形成的行政组织的职能制，即同级行政机关和每级行政机关内部各组成部门之间的组合方式。,行政组织横向结构的分类：,从现代管理功能看，可分为决策、执行、咨询、信息和监督等部门。 如果从各个部门的职能范围与业务性质看，可分为：一般权限部门专门权限部门,、行政组织纵向、横向结构的统一,我国现在基本上采用直线职能式结构： 从纵向上看，我国行政组织划分为四个层次。 从横向上看，每级政府内部按业务
21、性质平行划分为若干职能部门。,三、行政组织理论：,古典行政组织理论 新古典行政组织理论（世纪年代起） 现代组织理论（世纪年代以后）,、古典行政组织理论：,科学管理组织理论（泰勒）行政管理组织理论（法约尔、古立克）科层组织理论（韦伯）,、新古典组织理论： （又称行为科学组织理论）,人际关系理论组织平衡理论决策过程组织理论,、现代组织理论：,系统分析组织理论权变组织理论,Webers theory of bureaucracy (P21-24),six principles for modern systems of bureaucracy The main differences and adv
22、ances of the Weberian system are best understood by comparison with earlier models of administration.,(1) Weber set out six principles for modern systems of bureaucracy, deriving from the idea of rational-legal authority,The principle of fixed and official jurisdictional areas, which are generally o
23、rdered by rules, that is by laws or administrative regulations.The principle of office hierarchy and of levels of graded authority mean a firmly ordered system of super- and sub-ordination in which there is a supervision of the lower offices by the higher ones.,The management of the modern office is
24、 based upon written documents (the files) which are preserved. The body of officials actively engaged in public office, along with the respective apparatus of material implements and the files, make up a bureauIn general, bureaucracy segregates official activity as something distinct from the sphere
25、 of private lifePublic monies and equipment are divorced from the private property of the official.Office management, at least all specialized office management and such management is distinctly modern usually presupposes thorough and expert training.,When the office is fully developed, official act
26、ivity demands the full working capacity of the officialFormerly, in all cases, the normal state of affairs was reversed: official business was discharged as a secondary activity.The management of the office follows general rules, which are more or less stable, more or less exhaustive, and which can
27、be learned. Knowledge of these rules represents a special technical learning which the officials possess. It involves jurisprudence, or administrative or business management.,(2) The principle of bureaucracy represented a substantial advance on early administration.(P22-23),The replacement of personal administration with and impersonal system based on rules.,四、行政组织设置的原则：,、职能目标原则 、整体效能原则 、分权管理原则 、依法设置原则 、精简原则 、责任和权力一致原则,案例分析： 广州市专利机构的诞生与发展,1.独立资料研习阶段 (20-25分钟) 2.分组讨论阶段 (20-25分钟) 3.小组汇报与总结阶段(20-30分钟),参考资料：,公共行政学经典：官僚制（P37-P43）行政管理案例教程（第一版）：“广州市专利管理机构的诞生与发展” （P105-P110）,THE END,
