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題名:「標竿學習法」在政府部門之應用─兼論現階段我國政府再造策略
作者:劉祥得 引用關係
作者(外文):Liu, Hsiang Te
校院名稱:中國文化大學
系所名稱:政治學研究所
指導教授:翁興利
孫本初
學位類別:博士
出版日期:2000
主題關鍵詞:政府再造標竿學習法標竿學習團隊標竿學習伙伴差距分析現場訪察reinventing governmentbenchmarkingbenchmarking teambenchmarking partnergap analysissite visit
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「標竿學習法」(benchmarking)係管理學與企業實務界之新寵,自1990年發展以來,已創造了無數企業的競爭優勢,成為另一項管理顯學。尤其在90年代當企業面臨全球性經濟不景氣與發展停滯之時,透過標竿學習法暨流程再造之引用,諸多企業因而再獲重生,也使得「標竿學習法」在管理學上的定位重新獲得肯定。
事實上,不僅企業面臨嚴峻環境的考驗,政府部門亦在90年代面臨前所未有的困窘,除了政府經費支出短絀外,國家經濟的惡化更帶來無數的社會問題與壓力。因此,政府紛紛投入所謂「新政府運動」(reinventing government)之行列,以讓政府可以「花得更少,做得更多」。惟值得探討的是,許多國家雖然都追隨所謂的「新政府運動熱」,但能成功地改造政府者並不多見。我國政府亦於民國87年著手規劃「政府再造」運動,但執行至今似乎成效不大。究其原由,本文認為係缺乏策略應用所致,以致於政府再造方案徒然無功。
綜觀所有的管理工具,本文認為「標竿學習法」將成為政府再造之最佳策略工具之一,其所涵蓋的功能,包含提高生產力與績效;促進組織學習;敦促組織改進;滿足顧客需求;協助目標設立;維持競爭力;改變組織文化;改進工作流程等,都是「新政府運動」所強調的主張與重心,若能妥善應用「標竿學習法」於政府部門,將可以為暮氣沉沉的政府機關帶來無限的生機。
本論文的探討主題訂定為:「『標竿學習法』在政府部門之應用-兼論現階段我國政府再造策略」。「標竿學習法」應用於政府部門的先例,世界上並不多見,國內更是無人研究,本文為探討此一管理工具是否可以為我國政府再造運動重創生機,並奠定政府改造的理論與基礎,因此,將研究的焦點置於「『標竿學習法』在政府部門之應用」上,希望可以為我國行政管理之改革,帶來新的契機。然由於本論文係以探討「標竿學習法」為主,並非探討我國政府再造之論作,因此,將副標題訂定為「兼論我國政府再造策略」,試圖將「標竿學習法」引進我國政府再造歷程中。
本文於第一章介紹論文之研究動機、目的、方法、流程、架構、限制、範圍、和文獻探討等,以讓讀者可以快速瞭解本論文的研究歷程。而後,第二章開始探討「政府再造」之理論與實務,探討政府再造的理論基礎與各國再造經驗。雖然「政府再造」已被廣泛地實施,惟政府再造的理論仍未被建立,多數國家都是因應特殊環境而規劃再造內涵。因此,本論文嘗試性地歸納各國政府再造經驗之共通性,試圖建立政府再造運動之一般性通則。然於探討政府再造理論及各國經驗之餘,本論文亦根據所歸納的理論基礎及各國經驗,析論我國政府再造之過程的適當性。
本文第三章開始引進並介紹「標竿學習法」。首先,本文闡述標竿學習法與政府再造之間的關係,論證以「標竿學習法」作為政府再造策略之適當性。其次,介紹標竿學習法之發展沿革與界定,而後再根據標竿學習的範圍、功能、類型、限制,做更詳盡的分析與討論。事實上,國內有關標竿學習的文獻十分有限,本文可以說是第一本有系統地引進標竿學習之著作。值得一提者,將「標竿學習法」應用於政府再造歷程者,可以說目前仍付之闕如。
第四章開始介紹「標竿學習法」之應用程序。首先,必須進行標竿學習的前置作業,包含標竿學習團隊(benchmarking team)的成立和自我組織分析等。而後,選定標竿學習的對象(what to benchmark),包含組織結構、功能、策略、品質、生產力、成本、流程、法制規範等,都可以作為標竿學習的對象與內涵,其必須視組織的發展與需要而選定最合適的項目。第三,則開始挑選標竿學習夥伴(benchmarking partner),亦即向誰學習(whom to benchmark)的議題。第四,當學習夥伴與內涵挑選完成後,即可以著手進行資料蒐集的工作。資料蒐集包含靜態及動態的兩種,前者為文獻分析、資料庫交換、圖書館查詢等,而後者則為「現場訪察」(site visit)、訪問等等。當資料蒐集完成後,即著手組織績效差距分析(gap analysis)與標竿學習計劃執行的工作,以提高政府的績效與競爭力。
本文第五章開始分析各國的標竿學習經驗,包含澳洲、英國、美國等國家。澳洲係第一個將「標竿學習法」應用於政府再造的國家,其經驗十分成熟。尤其澳洲已將「標竿學習法」廣泛推廣至地方執政聯盟,同時也建立專業標竿學習網絡(benchmarking network),是一個標竿學習經驗十分完整的國家。英國郵局採納標竿學習法的經驗,可說也是未來政府部門後勤組織進行行政改革時,值得參考的經驗。而美國廣泛建立的為民服務最高標竿,也是基層公務員未來努力的目標。
本文第六章藉「階層分析程序法」(Analytical Hierarchy Process, AHP)工具,協助我國政府機關界定未來標竿學習的對象。經過三十餘位學者、官員、卓越企業人士之訪談後,認為策略規劃和流程學習,將是未來我國政府機關可以考量進行標竿學習的項目與對象。除此之外,本文亦藉AHP之分析,證明過去政府所規劃之組織、法制、人力再造,是不恰當的,因為組織結構、法制規範學習的優先向量值(priority vector)都很低,代表學者、官員、企業人士都不認為政府再造應從組織結構和法制面著手。
本文除了有系統地將「標竿學習法」引進國內之外,同時也獲得幾項結論。首先,調整目前的政府再造計劃,以務實、能改善政府實際績效的角度出發。其次,建議政府機關採納「標竿學習法」,作為政府再造之策略工具,以徹底地改造行政機關之舊有弊習。第三,建議地方縣市政府成立「標竿學習聯盟」及「標竿學習資料庫」,以利於彼此間的比較與學習,同時剷除自滿與保守的心態。第四,建議未來標竿學習計劃以「策略規劃」和「流程」學習,作為的標竿學習主要內涵,如此或許更能快速地改造我國政府機構。
綜而言之,「標竿學習法」雖然對於國內大部分企業和政府部門來說,都是一項陌生的管理技術,然藉由本文的介紹與闡述後,應可以對其有更深一層的瞭解與認識。尤其對於政府部門來說,政府再造的規劃從未考量過策略應用的議題,使得政府再造推動僅能從法制面著手,改革成效並不令人滿意。本文大膽建議將「標竿學習法」應用於政府改造上,希望能為我國行政改革帶來新的契機。
Government action aimed at establishing a planned process for "Reinventing Government" in Taiwan, has been apparent ever since 1998, and many projects have already gone through the various stages of formulation, authorization and implementation. It is, however, clear that the accomplishment of "Reinventing Government" has not been an altogether satisfactory process from the perspective of Taiwan citizens. There has been a failure to solve the administrative problems that have existed for so long, and clearly, the opportunity to undertake successful administrative reform has been squandered.
The problem lies in the government''''s attempts at importing the sort of ''''reinventing'''' strategies used by the west, since the administrative and bureaucratic cultural gap between western and eastern nations is just too great to make these projects viable. Copying another nation''''s experiences in reinventing government without having any form of deliberation, is unlikely to lead to success, thus this article recommends that the government of Taiwan should adopt a "benchmarking" strategy in order to adapt its approach to "Reinventing Government" strategies. The "action" orientation of benchmarking can help to solve all the problems caused by the administrative and bureaucratic cultural gap, and dispose of the obstacles which hinder current administrative reform.
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