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1、第四章行政组织主要内容及重点：主要内容及重点：行政组织的含义、基本要素、特征、行政组织的含义、基本要素、特征、类型类型行政组织结构行政组织结构行政组织理论行政组织理论行政组织设置的原则行政组织设置的原则、行政组织的特性、行政组织的特性政治性与社会性政治性与社会性法制性与权威性法制性与权威性系统性和动态性系统性和动态性、行政组织的类型、行政组织的类型以上下级权限关系：以上下级权限关系：集权制集权制分权制分权制以各组织机构的职权性以各组织机构的职权性质与范围：质与范围：层级制层级制职能制职能制以组织行使最高决策的以组织行使最高决策的人数：人数：首长制首长制委员会制委员会制混合制混合制以组织的不同功
2、能与作用：以组织的不同功能与作用：领导机构领导机构执行机构（职能机构）执行机构（职能机构）监督机构监督机构咨询机构咨询机构信息机构信息机构办公机构（辅助机构）办公机构（辅助机构）派出机构派出机构领导机构：领导机构：它是各级政府指挥与决策的中心，它是各级政府指挥与决策的中心，“中枢中枢”。其作用是统筹全局。其作用是统筹全局。执行机构（职能机构）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）务的机构。（执行性、专业性、局部性）监督机构监督机构咨询机构咨询机构信息机构信息机构辅助机构辅助机构派出机构派出机构派出机构：派
3、出机构：它是一级政府按管辖地区授权委派它是一级政府按管辖地区授权委派的代表机构。的代表机构。行政公署行政公署区公所区公所街道办事处街道办事处Public Enterprise(P94-99)(1)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 econo
4、my.To facilitate centralized long-term economic planning.To change the nature of the economy,from capitalist to socialist.To correct market failureThe 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 mo
5、nopoly,restriction of competition 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 economyThe second point the structure of pay-offs means altering the benefits received by particular
6、 individuals or groups.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 fac
7、ilitate centralized long-term To facilitate centralized long-term economic planningeconomic planningThe 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 so
8、me sparsely settled countries like Australia and Canada,utilities were 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 re
9、sources to carry out the development of key services.To change the nature of the economy,from capitalist to socialistThe 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
10、 nationalized so that the commanding heights of the economy 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
11、 authorities(P99)Public utilities(P97)Public utilities 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,n
12、atural monopoly.(P97)Secondly,the 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
13、the various public transport system 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
14、and postal services have 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
15、same market.This category includes banks,insurance companies,airlines,oil companies,to name but a few.they are profitable and operate no differently from competitorsGovernments have involved themselves with enterprises in competitive environments for many reasons:When a company failed in the marketp
16、lace;To stimulate 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
17、 activities 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.SummaryAll the above categories show strong linkages between government ownership and government reg
18、ulation.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 a re-a
19、ssessment of the nature and effects of the regulatory environment.(P99)二、行政组织结构：二、行政组织结构：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员、单位、部门和层级之间的分工协作以及联系、沟通方式。作以及联系、沟通方式。行政组织的纵向结构行政组织的纵向结构行政组织的横向结构行政组织的横向结构、行政组织的纵向结构：、行政组织的纵向结构：它又称为直线式结构，是纵向分工它又称为直线式结
20、构，是纵向分工形成的行政组织的层级制。形成的行政组织的层级制。应注意以下两点：应注意以下两点：第一，管理层次与管理幅度的关系。第一，管理层次与管理幅度的关系。第二，层次管理的原则。第二，层次管理的原则。管理层次与管理幅度管理层次与管理幅度管理层次：管理层次：是行政组织纵向结构的等级层次，即行政机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，这应由行政关中设置多少等级的工作部门，这应由行政机关的工作量来决定。机关的工作量来决定。管理幅度：管理幅度：是指一级行政机关或一名上级领导者直接领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。导和指挥的下级单位
21、或工作人员的数目。层次管理的原则：层次管理的原则：层次节制的原则层次节制的原则只管一个层次的原则只管一个层次的原则、行政组织横向结构：、行政组织横向结构：它又称为职能式结构，是横向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。各组成部门之间的组合方式。行政组织横向结构的分类：行政组织横向结构的分类：从现代管理功能看，可分为从现代管理功能看，可分为决策、执行、咨询、信息和监督等决策、执行、咨询、信息和监督等部门。部门。如果从各个部门的职能范围与业务性如果从各个部门的职能范
22、围与业务性质看，可分为：质看，可分为：一般权限部门一般权限部门专门权限部门专门权限部门、行政组织纵向、横向结构的统一、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：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从纵向上看，我国行政组织划分为四个层次。个层次。从横向上看，每级政府内部按业务性从横向上看，每级政府内部按业务性质平行划分为若干职能部门。质平行划分为若干职能部门。三、行政组织理论：三、行政组织理论：古典行政组织理论古典行政组织理论新古典行政组织理论新古典行政组织理论 （世纪年代起）（世纪年代起）现代组织理论现代组织理论 （世纪年代以后）（世纪年代以后
23、）、古典行政组织理论：、古典行政组织理论：科学管理组织理论（泰勒）科学管理组织理论（泰勒）行政管理组织理论（法约尔、行政管理组织理论（法约尔、古立克）古立克）科层组织理论（韦伯）科层组织理论（韦伯）、新古典组织理论：新古典组织理论：（又称行为科学组织理论）（又称行为科学组织理论）人际关系理论人际关系理论组织平衡理论组织平衡理论决策过程组织理论决策过程组织理论、现代组织理论：、现代组织理论：系统分析组织理论系统分析组织理论权变组织理论权变组织理论Webers theory of bureaucracy(P21-24)six principles for modern systems of bur
24、eaucracy The main differences and advances of the Weberian system are best understood by comparison with earlier models of administration.(1)Weber set out six principles for modern(1)Weber set out six principles for modern systems of bureaucracy,deriving from the idea systems of bureaucracy,deriving
25、 from the idea of rational-legal authorityof rational-legal authorityThe principle of fixed and official jurisdictional areas,which are generally ordered by rules,that is by laws or administrative regulations.The principle of office hierarchy and of levels of graded authority mean a firmly ordered s
26、ystem 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 based upon written documents(the files)which are preserved.The body of officials actively engaged in public office,along with the respective apparatus of m
27、aterial implements and the files,make up a bureauIn general,bureaucracy segregates official activity as something distinct from the sphere of private lifePublic monies and equipment are divorced from the private property of the official.Office management,at least all specialized office management an
28、d such management is distinctly modern usually presupposes thorough and expert training.When the office is fully developed,official activity 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
29、 activity.The management of the office follows general rules,which are more or less stable,more or less exhaustive,and which can be learned.Knowledge of these rules represents a special technical learning which the officials possess.It involves jurisprudence,or administrative or business management.
30、(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：四、行政组织设置的原则：、职能目标原则、职能目标原则、整体效能原则、整体效能原则、分权管理原则、分权管理原则、依法设置原则、依法设置原则、精简原则、精简原则、责任和权力一致原则、责任和权力一致原则案例分析：案例
31、分析：广州市专利机构的诞生与发展广州市专利机构的诞生与发展1.1.独立资料研习阶段独立资料研习阶段(20-25(20-25分钟分钟)2.2.分组讨论阶段分组讨论阶段(20-25(20-25分钟分钟)3.3.小组汇报与总结阶段小组汇报与总结阶段(20-30(20-30分钟分钟)参考资料：参考资料：公共行政学经典：官僚制（公共行政学经典：官僚制（P37-P37-P43P43）行政管理案例教程（第一版）：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广州市专利管理机构的诞生与发展”（P105-P110P105-P110）THE ENDTHE END此此课件下件下载可自行可自行编辑修改，修改，仅供参考！供参考！感感谢您的支持，我您的支持，我们努力做得更好！努力做得更好！谢谢!