鄉鎮市績效行政之模型建構─趨向企業型政府之分析

A Constructive Model for Performance Administration of Township in Taiwan：an Analysis of Entrepreneurial Government

曾文敬(Tseng Wen-cheng)

指導教授 ： 紀俊臣 ； 李弘暉

元智大學/管理學院/管理研究所/碩士(2000年)

摘要

﹝摘要﹞
論文名稱：鄉鎮市績效行政之模型建構－趨向企業型政府之分析
校所組別：元智大學管理研究所EMBA公共事務組
研究生：曾文敬 指導教授：紀俊臣 博士,李弘暉 博士
﹝論文摘要﹞：
本研究企圖建構鄉鎮市的績效行政模型。嘗試證明應用績效行政之模型，採取企業管理之組織、品質、策略及方法，對於鄉鎮市政府（包括府、會）之經營與管理是否可行。
自1980年以來，全球性「政府再造」風潮雲湧；87年元月，行政院蕭內閣亦公布「政府再造綱領」，積極推動組織、法制、及人力和服務再造，企圖引進企業精神，建立一個創新、彈性、有應變能力的政府，以提升國家競爭力。企業精神的內涵，主要包括：顧客導向與提升生產力二者。政府的施政與服務，要以民眾滿意為目標。提升生產力，即是提升行政績效，加強為民服務。民國88年元月，地方制度法公布施行，衝擊著台灣的地方自治。鄉鎮市受制於原有組織僵化、授權不足、財源短缺、人力素質普遍低落等因素，而導致治理失靈。亟待增進鄉鎮市之績效行政，以提振民眾對政府的信心與滿意度。
本研究，首先檢討企業型政府之理論建構，對一般行政理論加以評估，發現以往發展的各種行政型態欠缺管理、欠缺績效和品質。再從地方政府因應內外環境壓力與強烈的競爭，理出現在鄉鎮市政府的需要，運用市場觀點的投注及探討，充分瞭解到政府需要效能、政府需要計畫、政府需要發展、政府更需要經營。為因應政府的需要，將企業界著有績效之管理手法，引進至鄉鎮市政府：採取企業管理之方法、策略品質與組織，藉由新制度論的觀點，企圖將鄉鎮市建構為企業型政府之績效行政模式。接著，澄清行政體系為民服務績效之價值，在於高品質服務之運作。服務品質經由保證，而獲得認同；品質優勝透過創造，而塑造典範。以組織及功能途徑，診斷鄉鎮市政府之問題和缺失，進而引進企業精神，運用企業管理理念及工具，建構出鄉鎮市績效行政之理想模型。
最後，本研究依循我國政府再造之三個層面，模擬組織再造－經理模式；法制再造－企業模式；人力及服務再造－團隊模式之組織的策略變革。研究結果發現，鄉鎮市組織鬆散，管理不具效能，將有許多發展瓶頸；鄉鎮市運用企業型政府，採取經理制，將有其顯著績效，可受好評。並提出檢討地方制度法，重新考量地方自治改制的方向、及防止議會干擾行政的方法之建議。
關鍵詞：企業型政府，鄉鎮市政府，績效行政，市經理制。

關鍵字

企業型政府 ； 鄉鎮市政府 ； 績效行政 ； 市經理制

並列摘要

﹝Abstract﹞
Title of Dissertation：A Constructive Model for Performance
Administration of Township in Taiwan：an Analysis of
Entrepreneurial Government
Name of School：Graduate School of Management, Yuan Ze
University
Graduation Date：2000.06.09 Degree of Conferred：M.D.
Name of Student：Tseng Wen-cheng
Advisor：Chi, Chun-chen Ph.D.; Li, Hung-hui Ph.D.
Key words：entrepreneurial government the township government，
performance administration，city manager plan.
﹝Abstract of Dissertation﹞
This study is aimed to construct a model for performance
administration of township in Taiwan. By adopting business methods of organization, quality, strategy, we apply the performance administration model to township government to check whether it is feasible for township management.
Since 1980, “reinventing government” has been prevailing globally like a storm. In January 1998, Taiwan’s Prime Minister Vincent Hsiao also issued “Reinventing Government Guideline”, followed by pushing the government reconstruction program in organizations, legality, human resource and service, etc., with a hope to establish a more innovative, flexible and competent government by introducing entrepreneurial spirit. The essence of entrepreneurial spirit includes both customer-oriented service and high productivity. The objectives of government administration and service are aiming to satisfy the general public’s needs. On the other hand, the promotion of high productivity means to increase administrative performance so as to provide the public better services.
In January 1999, the Local Government Law was implemented, giving an impact on the “local self-government” in Taiwan. In the past, the township government was a failure in governance due to rigid organization, insufficient authorization, shortage of budget, low quality of human resource, etc. It is highly hopeful our township administration will perform well. Then the general public would be more satisfied and their confidence in government would be restored.
This study starts with the review of theories on entrepreneurial government. Then general administrative theory was appraised to show the past-developed administration modes were inadequately organized in terms of performance and quality. In view of increasing pressures and intense competition that the government faces, the study deals with the particular need of township government. From the viewpoint of marketing, this study also gives further exploration on the efficiency need of sound planning, development, and management for government. In response to these government needs, entrepreneurial management for better performance should be introduced into the township government. From the viewpoint of new-institutionalism, and by using the business administration methods, good strategy, quality and organization, this study attempt to construct a township government model for performance administration of entrepreneurial government.
Next, It is clear that the value of service performance in the administrative system lies in high-quality operations. A guaranteed service quality will be recognized and accepted. High quality achieved through innovation will create a new paradigm. The problems and defects of the township government organization and functions are diagnosed. The entrepreneurial sprit is then introduced combining business management concepts and tools in the ideal constructive model for performance administration of township.
Finally, the study reviews the Local Government Law, redirects the changing of the local self-government, and suggests ways to prevent the legislative body（the council）from interfering the township with administration.

並列關鍵字

entrepreneurial government ； the township government ； performance administration ； city manager plan

參考文獻

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興譯，台北：揚智文化事業股份有限公司，民國80年。

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Concept and Purpose”, Public Administration Review, No.41,