第六章行政领导

第六章行政领导 公共管理学院主讲人：徐凌（副教授）

主要内容及重点： • 领导与行政领导的概念 • 行政领导制度 • 行政领导者的职位、职权和责任 • 行政领导者的素质及其结构优化

一、领导与行政领导 １、领导：领导是指领导者在一定的环境下，为实现既定目标，对被领导者进行指挥与统御的行为过程，即指领导活动。领导有“率领、引领”之意。对于领导的本质，“领导就是两个要素：一个是带领，一个是疏导。”

领导可以用不同视角来分类： • 按领导权力基础：　　正式领导　　　　　　　　　　　非正式领导 • 按领导活动层级：　　高层领导　　　　　　　　　　　中层领导　　　　　　　　　　　基层领导 • 按领导活动领域：　　政治领导　　　　　　　　　　　行政领导　　　　　　　　　　　业务领导

领导的特点： • 领导是一个社会组织系统 • 领导是一个动态的行为过程 • 领导是高层次的管理 • 权威性

２、行政领导（P105） • 行政领导是指在行政组织中，经选举或任命而享有法定权威的领导者，依法行使行政权力，为实现一定的行政目标所进行的组织、管理、决策、指挥等的社会活动。 • 特点：只是对“行政”的领导　　　　活动方式具有执行性　　　　具有鲜明的政治性

二、行政领导制度 １、民主集中制：它是民主制与集中制结合的一种制度。民主制，指在国家生活中，人民群众当家作主，有权以不同方式积极参政议政；集中制，指坚持在高度民主基础上，实行高度集中，实行少数服从多数，个人服从组织，下级服从上级，全党服从中央。

２、集体领导、个人分工负责与行政首长负责制２、集体领导、个人分工负责与行政首长负责制 • 集体领导：　是集体决策、共同负责的制度，即对重大问题，由领导集团全体成员讨论，做出决策和决定，一经决定，必须共同遵守。 • 个人分工负责：　就是行政领导集团内各成员为执行集体领导的意志而密切配合，各司其职，各尽其责。 • 集体领导与个人分工负责制的具体形式 ——行政首长负责制

行政首长负责制 　　它是相对于委员会制而言的，是民主集中制和集体领导与个人分工负责制相结合制度的一种具体形式。 • 它是指重大事务在集体讨论的基础上由行政首长定夺，具体的日常行政事务由行政首长决定，行政首长独立承担行政责任的一种行政领导制度。

三、行政领导者的职位、职权和责任 １、行政领导者的职位：它是指国家权力机关或国家从事行政部门根据法律与行政规程，按规范化程序选择或任命行政领导者担任的职务和赋予其应履行的责任。　　职务和责任构成行政领导者职位的不可或缺的两个要素。

行政领导者职位的特点： • 以“事”为中心确定下来 • 职位的设置有数量的规定性 • 职位本身具有相对稳定性

２、行政领导者的职权： • 法定的与职位相当的行政权力，就是行政领导者的职权。 • 职权与职位的关系：　　职权由职位衍生而来，职位性质决定职权性质；　　职权与职位有对应关系；　　职权是法律认可与确认的权力。

３、行政领导者的责任： • 是指行政领导者违反其法定的义务所引起的必须承担的法律后果。 • 行政领导者的责任的内容：政治责任　　　　工作责任　　　　法律责任

四、行政领导者的素质及其结构优化 １、什么叫行政领导者？指依据国家法律所授予的行政权力，在政府行政机关中处于领导、决策地位的人。 • 行政领导者的产生方式　　　　　　资料分析: “公选副厅局级干部” 《行政管理学案例教程（第一版）》

２、行政领导者的素质： • 行政领导者素质的含义：（双重含义）　　　第一，指构成领导者的各种内在要素以及由这些因素综合而成的本质性能力，即领导能力。　　　第二，还指这些要素、能力的现实状态，即发展程度或实际水平。

时代性 层次性（美）罗伯特．卡茨：领导者必备三种技能：　　技术技能　　人际技能　　概念技能领导者分为三个层次：　　低阶层领导者　　中阶层领导者　　高阶层领导者行政领导者素质的特点：

政治素质 知识素质能力素质心理素质身体素质洞察力预见力决策力推动力应变力行政领导者的素质：

合理的静态结构： 年龄结构　　知识结构　　智能结构　　气质结构合理的动态结构　　　古希腊，根据人身体中体液的分泌不同，分为四种气质的人：　　　胆汁质　　　多血质　　　粘液质　　　抑郁质３、行政领导班子的素质结构及其优化

资料分析与研讨: • 资料片： “英特尔ＣＥＯ贝瑞特专访” 　　讨论：优秀的领导者应该具有怎样的素质？

Strategic Management • The traditional model of administration was criticized earlier for its inward focus and short-term perspective. • Both of these shortcomings have altered with the advent of public management, and the public sector now shows more concern with longer-term strategy than ever before. • The strategic perspective considers the organization in its external environment; it aims to specify clear goals and objectives; it attempts to move away from routine management tasks to consider, in a systematic way, longer-term considerations of the very future of the organization. • Strategy addresses ‘a crucial concern: positioning the organization to face an increasingly uncertain future’.(P132)

Strategy • ‘Strategy’ is a term deriving from the military: it refers to the objective of winning the war, as opposed to ‘tactics’ – the lower-level objective of winning a particular battle.

Five stages of strategy planning (P133) Hax and Majluf(1984,1996) argue there are five stages in the evolution of strategy planning: • budgeting and financial control; • long-range planning; • business strategic planning; • corporate strategic planning and • strategic management.

Strategy in the public sector (P136) • Budgeting and financial control started very early in the public sector. This planning stage could be argued to be the quintessence of organizations in the traditional model of administration, where the main planning aim is simply to spend the budget allocation. • Long-range planning was also used in the same way as in the private sector and with the same problems of forecasting. • Strategic planning in the public sector is a phenomenon of the early 1980s, significantly later than its development in the private sector. • Strategic management was also adopted but , again, followed the private sector with a gap of some years.

Three major features of a strategic approach (P137) • defining goals and objectives, • developing an action plan that mediates between the organization and the environment, and • designing effective methods of implementation.

strategic planning process • The overall mission and goals statements, which are formulated by an organization’s executive management and provide the framework within which strategies are developed – the ‘targets’ toward which strategies are aimed. • The environmental scan or analysis, consisting of the identification and assessment of current and anticipated external factors and conditions that must be taken into account when formulating the organization’s strategies. • The internal profile and resource audit, which catalogues and evaluates the strengths and weaknesses of the organization in terms of a variety of factors that must be taken into consideration in strategic planning. • The formulation, evaluation and selection of strategies. • The implementation and control of the strategic plan.

Strategic management (P141) • Strategic management aims to integrate the planning function with the overall management task. • McCaffery agrees, arguing that strategic management includes strategic planning, but it is ‘a more inclusive concept, emphasizing dynamic interaction with the environment and an incremental methodology that allows for scanning the environment and an increment to choose the target that will yield the most benefit for the effort expended’.

Strategic management’s four principles(P142) • concern with the long term, • integration of goals and objectives into a coherent hierarchy, • recognition that strategic management and planning are not self-implementing, and most important,an external perspective emphasizing not adapting to the environment but anticipating and shaping of environmental change. • Strategic public management adds an additional ingredient: strategic thinking must be cognizant of the exercise of political authority.

The End

第六章 行政领导