計畫趕不上變化？風險因素對台灣地方政府策略管理影響之研究

Do Plans Ever Keep Up with Changes? A Study on the Impact of Risk Factors on Strategic Management in Taiwan Local Government

王俊元(Chun-Yuan Wang)

《東吳政治學報》 30卷3期 (2012/09) Pp. 109-159

https://doi.org/10.6418/SJPS.201209.0109

摘要

過去25年來，關於策略管理的討論與實務應用已在公部門產生重大影響，我國中央政府各部會亦於民國87年起引進策略管理的精神並實施中程施政計畫制度；然而，面對環境急遽的變化，例如全球金融風暴、歐債危機等，對公部門的策略管理者儼然也帶來新的挑戰，尤其對資源相對匱乏的地方政府而言，施政上面更是受到相當大的衝擊。儘管公部門中常存著「計畫趕不上變化」此一看似真理的看法，就公共行政的研究者而言，吾人更應藉由系統性的方式瞭解變化與計畫之間的關係，期能更有效的回應變遷迅速之環境。換言之，本文擬透過探索性的途徑，試圖探討組織內外的風險因素對於地方政府的策略管理會產生什麼影響。本文首先回顧了策略規劃應用於公部門之相關文獻，並檢視國內外地方政府在策略規劃的相關作法與主要困境。其次，從文獻中也發現公部門策略管理並非完全是線性或理性來進行的；換言之，組織的內、外環境所充滿的各種風險因素，將對策略過程與內容產生影響。這些風險因素包含有：不確定性、風險知覺、脆弱性與組織復原能力等。為回答上述研究問題，本文透過深度訪談以蒐集質性資料並加以分析。藉由1998-2007年各縣市政府「補助協助依存度」之平均值為依據，本研究選取9個縣市政府中的縣長、局處首長與副首長，及業務承辦單位主管等人進行深度訪談。綜合而言，本研究發現在資源與應變能力有限的情況下，地方政府面臨各項風險因素時，確實容易造成施政計畫的中止或重大改變。因此，本研究最後也提供地方政府強化組織能力來克服劇變環境挑戰之建議。

關鍵字

不確定性 ； 風險知覺 ； 脆弱性 ； 組織復原能力 ； 地方政府 ； 策略管理

並列摘要

”Plans never keep up with changes” seems a pervasive stereotype in public organizations; meanwhile, this proverb has also stimulated the author to raise two questions in this study. First, what kinds of change really do affect plans? The subsequent question is how those changes influence plans. Compared with the spirit of strategic planning and the mid-term planning applied by Taiwan's central government, the question of how the local government should upgrade their administrative capacity and efficiency by adopting strategic management is a key issue we should pay attention to. Therefore, the scope of this research highlights the discussion in the context of local government. This study first reviews the literature concerning the application and implications of strategic management in the public sector. The methods and challenges of local government to implement strategic management have also been reviewed. Second, strategic management of the public sector is not always linear and rational; some risk factors of organizational internal and external environments will influence the process and the contents of the strategy. These risk factors include: uncertainty, risk awareness, vulnerability, and organizational resilience. In order to figure out how the risk factors impact on strategic management of local government, this research carries out the exploratory research by conducting in-depth interviews. According to the average of the ”complement adhere degree” of Taiwan local governments from 1998-2007, this study has selected county magistrates, commissioners, and some section chiefs from different departments and bureaus in nine different city and county governments to conduct in-depth interviews. In general, this article finds that when risk factors have actually started to influence the public governance of local government, they often terminates or postpones strategic plans. Finally, this study provides policy recommendations for local government to build capacity, in order to overcome the challenges from environmental turbulence.

並列關鍵字

uncertainty ； awareness ； vulnerability ； organizational resilience ； local government ； strategic management

參考文獻

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