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

Discussing the Different Paths of Bureaucratic Reform from the Aspect of Task Ambiguity——A Constructive Analysis of Literature

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.