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论文编号：	8574
作者编号：	1120100781
上传时间：	2016/6/20 16:05:20
中文题目：	地方政府项目导向型组织能力提升路径与提升方法研究
英文题目：	Study on the Path and Methods of Capability Upgrading in Local Government Project-Based Organization
指导老师：	戚安邦
中文关键字：	项目导向型组织，项目导向型组织能力，组织能力提升路径，组织能力提升方法
英文关键字：	Project-Based Organization, Project-Based Organizational Capability, Organizational Capability Upgrading Path, Organizational Capability Upgrading Method
中文摘要：	“集中力量办大事”是中国国家体制与其他国家制度的显著区别，也是解释中国社会经济发展模式与其他转型国家以及其他新兴经济体发展轨迹存在巨大差异的根本原因。“集中力量办大事”在政府行动上则体现为一个个具体的战略项目，因此这一举国体制在国家战略层面又被称为“大项目带动战略”，也即“项目导向型国家发展战略”。虽然政府项目在不同国家广泛存在，但是在中国社会的管理情境中，我们更加强调此类项目基于国家长期战略的政府主导性、外部效用性、长期持久性以及社会渗透性。地方政府在认真贯彻“项目导向型发展战略”的同时还面临多项目管理带来的组织变革压力以及能力提升压力，其根源在于政府行为的日趋项目化，其外在表现为政府部门逐渐由传统的行政职能型运作模式向项目导向型运作模式转变，甚至直接转型成为项目导向型组织。“地方政府项目导向型组织”作为政府组织模式创新的重要成果之一，其“项目活动”真正成为落实政府发展战略、探索政府发展方向、解决政府发展问题的核心途径、手段及工具，因遂行特定任务而发起的“临时性项目”则成为政府履行职能、解决问题、动员资源、内外协调的主导模式与协作平台，而此类组织中的传统行政工作则完全服务于项目活动。由于地方政府项目导向型组织与地方政府行政职能型部门存在本质不同，因此如何管理此类组织、如何提高此类组织的管理能力成为本研究关注的核心焦点。在项目导向型组织理论、项目导向型组织能力理论、政府项目导向型组织理论的指导下，依托南开大学与TJ市政府办公厅咨询工作处合作开展的决策咨询重点课题（“服务于加快发展方式转变的TJ市政府项目导向型组织建设现状与对策研究”，课题编号：ZFZX2012-4X），本研究通过采用文献梳理、深度访谈、实地观察、实证研究等多种方法对TJ市政府项目导向型组织管理模式及管理实践进行了长达6年的跟踪研究，相关主题包括：地方政府项目导向型组织模式研究，地方政府项目导向型组织能力体系研究，地方政府项目导向型组织能力提升路径研究，地方政府项目导向型组织能力提升方法研究。论文研究具有较强的理论价值和实践意义，理论意义主要体现在积极推动地方政府行政管理范式、组织管理范式由行政导向型向项目导向型转变，而实践意义则主要体现在为地方政府主动提升此类能力提供科学可靠的能力分析框架、能力提升路径以及能力提升方法。论文经过深入、规范、长期、科学的跟踪研究，主要获得以下结论及创新。 1. 地方政府项目导向型组织模式研究结论及创新论文在研究过程中发现，地方政府项目导向型组织与地方政府中传统的行政职能部门确实存在明显区别，作为内嵌在政府行政体系中的复杂管理机构，此类组织必须同时兼顾政府行政部门的合法性要求与多项目管理所需的灵活性要求。因此本研究提出了基于镜像结构与独特形式的地方政府项目导向型组织模式决定理论，其中，镜像结构强调此类组织必须具备任何政府机构所必须的政治合法性，即在组织体制、管理机制、规章制度、协作安排、人员调配、资源调用等方面必须做出一系列明确的规定性安排，这些规定性安排构成了组织行动的合法性框架，避免在对内沟通、对外协调过程中因为合法性不足带来的信任危机与合作危机。独特形式强调此类组织需要根据项目活动结构、项目管理结构、政府长期战略之间的匹配关系确定地方政府项目导向型组织的具体组织模式，并在问题解决、服务提供、价值创造过程中根据多项目活动管理需要对组织模式进行动态调整，这也是不同地方政府项目导向型组织存在巨大差异的根本原因。镜像结构强调此类组织作为政府机构的一致性、协调性，独特形式强调此类组织作为行动载体的自主性、灵活性，两者之间的平衡取舍是决定地方政府项目导向型组织模式的深层原因。 2. 地方政府项目导向型组织能力体系研究结论及创新论文在研究过程中发现，地方政府项目导向型组织能力可以进一步细分为问题感知能力、战略管理能力、行政支持能力、项目管控能力等4个能力要素，这4个能力要素又可以进一步区分为12个能力子要素，由此构建的能力层次模型得到了实证研究的充分支持，同时还显示上述能力要素及其子要素与政府绩效之间存在显著的正相关关系。在基于静态类别特征的能力层次模型基础上，本研究创新性的提出了基于动态匹配特征的组织能力体系模型，这一模型从问题解决逻辑、组织行动逻辑、应对策略逻辑等多个视角强调不同能力要素之间的动态、协调、匹配关系，因而能够更加科学、完整地描述作为抽象概念的地方政府项目导向型组织能力其内在构成、要素结构、互动机制等关键问题，在此基础上才能够为有效开展与地方政府项目导向型组织相关的能力发展研究、能力演化研究、能力提升研究等提供科学、稳健的理论支持。 3. 地方政府项目导向型组织能力提升路径研究结论及创新论文在研究过程中发现，地方政府项目导向型组织能力路径的本质其实是组织能力要素及其配置关系随时间变化所呈现出的变化轨迹，这一变化轨迹具有明显的过程性、阶段性、渐进性，并与传统的基于政策输入与政策输出的突变型政府能力提升路径有着本质不同。因此在地方政府项目导向型组织能力体系模型基础上，本研究对此类组织能力提升的微观路径与总体路径进行了开创性研究，其中组织能力的集成路径、组织能力的优化路径以及组织能力的提升路径构成了此类组织能力路径的微观基础，而基于组织项目管理成熟度模型的能力阶梯则构成了此类组织能力的宏观路径。根据研究发现，微观路径描述了此类组织能力“小步快走”的稳步提升过程，而宏观路径描述了“小步快走”的总体框架与总体目标，两者共同构成了此类组织能力路径描述的科学性及合理性。 4. 地方政府项目导向型组织能力提升方法研究结论及创新论文在研究过程中发现，由于方法论缺失，地方政府项目导向型组织能力提升意愿与能力提升效果之间存在极大落差，因此本研究开创性的提出了专门面向地方政府项目导向型组织能力提升的相关方法，具体包括分步集成方法、持续匹配方法、成熟度跃升方法等。其中，分步集成方法主要解决组织能力体系框架内各能力要素由分散管理向集成管理的过渡问题，持续匹配方法主要解决集成后的组织能力框架如何由低度匹配向高度匹配的优化过渡问题，而成熟度跃升方法主要解决既定水平最优配置的组织能力体系如何实现跨能力水平跃升问题。研究证明，通过采用分步集成方法、持续匹配方法确实能够实现既定水平能力提升的量变过程，而通过采用成熟度跃升方法也确实能够实现跨水平能力提升的质变过程，最终推动此类组织能力的长期可持续发展，并以此为基础服务地方政府发展的长期战略。
英文摘要：	“Focus On The Power To Do Great Things” is a significant difference between Chinese political system and other country’s systerms,this is also the root cause of the huge difference of socioeconomic development models between China and other emerging economies.The government need construct a range of strategic projects, which is called “Large Project Driven Strategy” by the admistratirve system for the nation,which also means “Project-Based National Development Strategy”.Although many nations may exist more or less government projects, we need emphasize the properties of the above projects in the Chinese management research context, which are, based on the national long-term strategy the government-drived, the external validity, the long-term persistent and the social permeability. Because of the projectification of the government activities, the local governments encounter much more pressures of organizational change and ability promotion from the projects management when they earnestly implement the “Project-Based Development Strategy”. For the most intuitive performance, the operation pattern of the government is gradually from the traditional administrative to the project–oriented. It is even “Project-Based Organization”, directly. The Local Government Project-Based Organization as one of the important achievements of the government organization management innovation, the "Project Activities" really become to carry out the development strategy of the government, to explore the government development direction, also become the core function, the means and the tools to solve the services of government development. And the “Temporary Projects” which are used to accomplish special works, become the dominant mode and collaboration platform for the government to perform functions, to solve problems, to mobilize resources, to make the balance between the internal and external requirement. The traditional departments and government activities need to work for the multiple projects management. Because of the essential difference between the traditional administrative organization and the project-based organization, it is the focus of this paper that how to manage these organizations and then how to improve the management ability of these organizations. In the Project-Based Organization theory, the Project-Based Organizational capability theory and the Government Project-Based Organization theory, and with the supporting of the advice project of the Government decision consulting which is accomplished by the Nankai University and the TJ government. For six years, the author has followed and studied the TJ government project-based organization mode and their practice by means of literature review, in-depth interviews, field observation, the empirical research and so on. The relative four sub-subjects include: Project-Based Organizational Mode in Local Government, Project-Based Organizational Capability System in Local Government, Project-Based Organizational Capability Upgrading Path in Local Government and Project-Based Organizational Capability Upgrading Methods in Local Government. This study has frontier and pioneering, and also has theoretical value and practical significance. Theoretical value is mainly manifested in pushing forward with the local government administrative management and organization management paradigm shifting from the traditional administrative organization to the project-based one. The practical value is mainly reflected in supplying the reliable analysis framework, ability of ascension path and promotion methods for the local government initiative to improve its Project-Based Organizational Capabilities. After in-depth, normative, long-term and scientific procedure of the follow-up study, the main conclusion and innovation points of this dissertation are as follows: Innovation 1: The study of the Project-Based Organizational Mode in Local Government The study research found that the project-based organization is significantly different from the traditional administrative organization. Because of being embedded in the complicated government system, these organizations must take the consideration to the legitimacy of the government departments and the flexibility of the multi-projects management. So this research innovatively put forward the theory of the local government project-based organization mode which is based on the mirror structure and the unique form. Among them, the image structure emphasizes the organization must have necessary political legitimacy of government agencies. This means that there must make a series of clear stipulation for the organization system, management system, rules and regulations, cooperation arrangement, personnel management, resource allocation and so on. This stipulation arrangement forms the legal framework for the organizational activities. It can avoid the trust crisis and cooperation crisis during the procedure of the communication between internal coordination and external coordination. Because of the unique form, when such organization decision the organization made need consider the relationship among the structure of the project activities, the structure of the project management and the long-term strategy of the government. And also need do some dynamic regulation during the process of solving problems, supplying services and creating value. This can explain the huge difference among different local government project-based organization which are in the different location of the government organization system. The mirror structure emphasizes that these organizations need be coordination and harmonization as government organizations. The unique form emphasizes these organizations need be autonomy and flexibility as the carrier of the services. The balance between them will influence the Project-Based Organizational Mode in Local Government. Innovation 2: The study of the Project-Based Organizational Capability System in Local Government The study research found that Project-Based Organizational Capability in Local Government can be divided into the followed four elements: question awareness ability, strategic management ability, administrative support ability and project control ability. The four elements can be divided into 23 sub-elements. Based on this, the hierarchical model is supported by the empirical study, at the same time also showed the significant positive correlation between the sub-elements and the government performance. Based on hierarchical model of the static characteristics of categories, the study creatively proposed the capability system model of the dynamic characteristics of categories. Considering the logical structure of the problem solving process, organization action logic and strategy logic, the model emphasize the dynamic relationship, the coordinate relationship and the matching relationship among the different elements. It is not just static, hierarchical and vertical relationship from the structure model. It can scientifically and completely describe the key problems such as inner structure, element structure, interactive mechanism and others of the Project-Based Organization in Local Government. Only on this basis, it is able to provide scientific and stead theoretical support for the research of development, evolution and promotion of the capability system. Innovation 3: The study of the Project-Based Organizational Capability Upgrading Path in Local Government The study research discovered that the nature of Organizational Capability Upgrading Path in Local Government is a transformative trajectorywhich is the relationship among the organizational capability elements over time,which is procedural, phased and gradual. And it is fundamentally different from the traditional and mutational capability upgrading path in local government organization which is based on the input and output policies. This research is based on the Project-Based Organizational Capability System in Local Government, and it studied on the micro-path and the macro-path to enhance the capability of these organizations. The micro-path consists of the integration path, the optimized path and the improving path. The macro- path is the systematic precedure consisted of the steps of the capability system which is based on the project management maturity model. According to the study, the micro-path describes the steady advancing of the capability of the organization. And the macro- path describes the overall framework and strategic objectives of the constant advancing of the micro-path. The above two pathes co-determine the scientificity and the reasonableness of the Project-Based Organizational Capability Upgrading Path in Local Governmanet. Innovation 4. The study of the Project-Based Organizational Capability Upgrading Methods in Local Government Because of the lack of methodology，there exists a large gap between the objectives and the implementation effects of the Project-Based Organizational Capability Upgrading in Local Government. This study proposed the Project-Based Organizational Capability Upgrading Methods in Local Government, such as distributed integration, continuous matching, maturity jumping and so on. The distributed integration method is used to help the elements of the organization system capablity framework transform from decentralized management mode to the integrated management one. The continuous matching method is used to help the integrated organization capability framework promoting the matching degree. The maturity jumping method is used to help the organization capablity system take an overall promoting. Research shows that the distributed integration method and the continuous matching method can help the capability promoting having quantitative changing. The maturity jumping method can help the capability promoting having a qualitative changing. At last, the organizational capability can have a steady development in a long term. And so, it can serve for the long-term strategy of the development of the local government.
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