2020年中国矿业大学(北京)行政管理考博参考书及考博真题解析
2020年中国矿业大学（北京）行政管理考博参考书及考博真题解析
2019年8月22日
一、2020年行政管理考博参考书及考博参考书解读
李国正，公共管理学，2018年版；
李国正，公共政策分析，首都师范大学出版社，2019年版；、
丁煌，西方行政学说史，武汉大学出版社，2004年版
弗雷德里克森，公共行政的精神，中国人民大学出版社，2003年版
此外，各个博士生导师的论文一定要看的。
育明教育石老师研究发现，北大人大清华北师大北航南开中山武大复旦等院校行政管理考博越来越趋向于考察热点问题，尤其是政策热点问题，比如产业政策争论、垃圾分类、放管服改革等，所以，大家一定要多看一些热点方面的参考书，如下所示：
《公共管理学：考点热点与真题解析》，首都师范大学出版社，2020年版；
《公共政策分析：考点热点与真题解析》，首都师范大学出版社，2020年版；
矿大行管考博招生每年对外招1-2个人，重点考的还是政府改革的热点问题。
二、行政管理考博参考书笔记及考点总结
1.公共组织的基本特征（2010年、2015年中国人民大学；2015年对外经贸大学；2008年中国传媒大学）
参照本章第2道名词解释题的答案，填充解释性语言。【定义+特征】
从广义而言，公共组织是指不以营利为目的，而是以服务社会大众，提高公共利益为宗旨的组织。从狭义而言，是指行使行政权，达成公共目的的组织。公共组织除具有一般组织的特性之外，在本质上与私人部门存在着相当大的差异。公共组织的特性如下：（1）公共组织以追求公共利益为其价值取向
公共组织的目的在于追求公共利益，其动机在于加强服务，便民利民，使民众获得最好的福祉
（2）公共组织的活动受法律法规的限制并具法律的权威
公共组织的活动凡举预算的编制或执行，人员的晋升，资源的使用等，皆必须在宪法或法律的规范下行动。组织所制定与执行的法律带有权威性
（3）公共组织权威的割裂
公共组织除了要向其上级行政单位负责外，也要考虑其服务对象以及立法，司法等其他团体机构的要求。政治越民主的国家，越注重政治权威的分立与制衡。
（4）公共组织受到高度的公共监督
公共组织因为基本性质是政治性的组织，其一举一动都必须接受来自舆论或人民大众的批评监督
（5）公共组织间的相互依存性
公共组织中的各单位，各成员彼此是相互依存的，其运作必须要在各级政府间的网络中折中协调
（6）公共组织政治因素的考虑
公共组织的行动必定发生在具有政治意涵的环境中，其制定的各类政策皆具有政治的意义，行政人员的的行为后果也具有政治上的影响
（7）公共组织的目标大多模糊不清且不易测量
公共组织的目标就是要创造公共利益，但公共利益大多是抽象模糊的。公共组织不仅目标模糊，分歧，不易测量，而且民众的期望很多，时常发生矛盾冲突
（8）公共组织的独占性
公共组织可以通过政治权威或公共权力的行使而生产某些财货和服务，形成独占市场的局面
（9）公共组织行为具有强制性
公共组织的活动本身即具有强制性，凡是其职权范围的事务，皆有管辖权，如果公民有违法乱纪的事情发生，公共组织便可在其职权范围内依法予以处理
2.结合实际，论述公共管理组织的特征及其设计原则（2018年中国人民大学；2013年对外经贸大学；2012年东北财经大学）
育明教育解析：论述题需要适度加入实际案例，如某地政府，并重点揭示知识点与案例的关系。参照第1道简答题答案：定义+特征。
（1）统一指挥，统一目标
组织是完整的统一体，要保证各部分统一行动就必须统一指挥，统一号令。
统一指挥的前提条件是统一目标，要实现统一目标就必须对总目标进行分解
统一领导是统一指挥的关键，在一个组织中只能有一套领导班子
机构设置统一是统一指挥的保证，要明确各机构之间的隶属关系，划清各职能部门间的界限
（2）分层管理，分权治事
任何组织都是一个层级节制的体系。分层管理，分权治事是组织中的普遍现象也是组织管理的准则。要实现有效的分层管理和分权治事，就要处理好以下关系：
①管理幅度和管理层次的关系
管理幅度是指一个管理人员能够有效地领导或控制的下级人员的数目
管理层次是指组织系统中划分的管理层级的数额
管理幅度与管理层次之间呈反比例关系
②集权与分权的关系
集权就是把决策权，控制权，人事调配权等集中于组织最高层
分权就是下级各级管理人员都有与其职责相适应的管理权力，可以根据实际情况独立处理问题
集权和分权是相互排斥和相互依赖的，组织既要集权有要分权。集权与分权的程度只能视外部环境，组织规模，组织活动内容，成员素质，空间区域等具体情形而定。
（3）执掌明确，权责一致
执掌明确，权责一致是指职务明确，权责分明，事有归属，责无旁贷，功莫由争，过无推诿。必须做到以下方面：
明确事权范围，实行职务分工，建立奖惩机制，厉行奖惩是达成执掌明确，权责一致的手段和途径
（4）以人为本，人性管理
人是组织中最主要，最基本的要素，是实现组织目标的决定性力量。因此组织的设计和管理必须讲求以人为本，适合人性。要做到以下方面：
工作分配要符合组织成员的主动性和兴趣
创造条件满足组织成员合理和正常的需要
增加组织成员晋升的机会，扩大调任范围，使其不断产生新的希望和报复，激发工作的热忱
加强思想交流
有纪律制裁走向人性激励
（5）经济效能，讲求效率
效率是组织追求的目标，要做到以下方面：
①组织机构要精简，要严格控制机构的规模和数量，避免机构的臃肿和重叠
②人员要精简，根据职位要求配备合格的工作人员，减少冗员，避免人浮于事
③领导班子要精简，合理确定领导人数，科学配备领导班子，减少副职和闲职
④机构层次要简化，尽量减少机构层次，减少中间环节和中间堵塞
⑤办事流程要简化，简便审批手续，减少审批环节，下放审批权，实行就地审批
（6）适应环境，保持弹性
组织既是环境系统的组成部分，与环境相互影响，组织自身也自成系统。要做到以下几点：
单位区分，保持弹性，各单位区分不宜过于固定，过于刻板
执掌权责区分保持弹性
员额编制保持弹性
对特定任务可采用人员临时编组方式处理
（7）顾及平衡，协调发展
分工与协调的平衡
个体与整体平衡
贡献与报酬平衡
3.依据公共权力标准，将公共组织分为哪些类型？（2017年中央财经大学）
（一）按财务—会计标准分类
总体上，公共组织大体可分为六种类型：政府机构、教育组织、健康和福利组织、宗教组织、慈善组织、基金会。
（二）按公共权力标准分类（育明教育注：易考名词解释题）
（1）强制型公共组织
这类公共组织主要是指政府部门。根据宪法和法律的授权、依靠公共权力对公共事务实行强制性管理。如，纳税人必须接受税务管理部门的管理。
（2）半强制型公共组织
在市场经济条件下，政府管理是“有限管理”，即在市场失灵的一定范围内实施有限管理。更多依靠市场手段而非行政手段。其强制性是可对抗的，当事人可拒绝裁决。如，仲裁
委员会――起诉。消费者权益保障委员会，各种行业协会等。
（3）非强制型公共组织
不仅数量多，而且同时担负着重要的公共事务管理任务。这类公共组织的最大特点是非强制性和服务性，其中多数是非营利的组织，如各种院校、社会学校、研究所、基金会等。
（三）按权威与等级结构标准分类
（1）古典模型：建立在行政管理等古典组织理论的基础上，效率是组织追求的首要价值。专业化与协作是组织的基本要素。
特点：
①组织具有四个基础：目标、过程、顾客、领域。
②对于每个组织而言，上述基础中必须有一个被赋予优先地位。
③行政部门在最高层次上按主要目标组建，每个部门包含一切有助于实现组织目标的活动。
④任何上级都能有效监督数量有限的直接下属，存在“控制范围”。
⑤行政权威和责任授予单一行政人员而非董事会或委员会这样的多成员机构。
⑥垂直领导活动与参谋活动被严格加以区分。
（2）官僚模型：其基础是马克斯·韦伯创立的官僚理论。官僚模型组织的基础是理性——合法权威。组织靠非人格化的规则来管理，理性意味着效率。
特点：
①基于职能专业化的劳动分工。
②有明确的职权等级制。
③有与任职者和职责相关的规章制度。
④有处理工作的程序系统。
⑤人与人之间关系的非人格化。
⑥雇员的选择与提升以其技术能力为基础。
（3）第三部门行政模型：系统方法和权变方法的应用。
特点：
①公共事务由多人的董事会或委员会进行管理，代表多元利益；
②政府成为“代理人”政府；
③政府不可随意监督组织外的代理商，不可随意利用行政命令取消合同；
④行政组织不是孤立地处理公共事务，与其他公共组织形成一个网络，通过组织互动来实现目标。
4.管理幅度和管理层次的关系（2016年山东大学；2016年华南理工大学）
参照本章名词解释第2题答案
5.行政组织体制的基本类型，论述其优缺点（2014年苏州大学。2013年北京科技大学）
参照本章考点、难点归纳考点7的内容来组织答题语言
6.组织环境的基本构成要素（2018年中央民族大学；2015年苏州大学）
参照本章考点、难点归纳考点15的内容来组织答题语言
7.组织变革的趋势（2012年对外经贸大学；2009年中央党校；2010年兰州大学）
育明教育解析：扩充答题语言可加入其他相关知识点，但要讲求详略得当，在趋势部分一定要解释更加细致。
组织变革是指组织根据内外环境变化情况，及时调整和改善自身的结构与功能，以提高其适应环境、求得生存的应变能力。
组织变革的目标：
（1）提高组织适应环境的能力。
（2）提高公共组织的工作绩效。
（3）使公共组织承担更多的公共责任。
组织变革的过程：
（1）对危机的感知。即组织成员意识到组织变革的必要性。
（2）变革方向的确定。即通过分析环境变化，确定组织变革的目标及方案。
（3）变革。即变革方案的实施，对变革所影响到的成员进行沟通，推行新的组织观念、制度和行为模式。
（4）监督调整。即根据变革进程调整相关措施，并将变革成果固定下来，实现新行为模式的“内在化”。
组织变革的趋势：
（1）着眼于知识经济时代组织特征及内部个体作用的变化，典型的理论是“学习型组织论”。
“学习型组织”论认为新的组织所依赖的技术以知识为基础，它设计是用来处理知识和信息的，组织成员的首要任务是如何识别和解决新的问题。
（2）着眼于组织结构的变化。
“无缝隙组织”论认为传统的科层结构导致组织变成一个庞大、僵化又四分五裂的怪物，这是组织适应性与活力下降的主要原因，因此，必须以无缝隙组织来取代之。
无缝隙组织具有以下特点：
①在工作上不存在条块分割，没有推诿扯皮，组织任务主要由具有多种技能的团队完成
②组织成员的角色明确性与清晰度低，没有严格的内部分工
③提供非标准化的产品或服务，具有高度的顾客导向性
④有较高的时间敏感度，注重结果和反馈，对工作的评价建立在顾客满意的基础上
（3）着眼于组织功能的变化。
政府再造论的十条标准：
①起催化作用的政府：掌舵而不是划桨。即把掌舵职能（制定政策和规划）和划桨的职能（提供公共服务）区分开来，使用许多方法（合同、代金券、不住、税收激励等）来完成目标，选择其中最能满足效率、效能、平等、责任和灵活性的需求方式。
②社区拥有的政府：授权而不是服务。即把服务控制权从官僚手中夺过来，放到社区手中，通过对社区进行拨款和授权来解决自身的问题，使之产生更多的承诺，更创造性的解决问题，并减少其依附性。
③竞争型政府：把竞争机制注入到服务中去。即要求服务提供者在绩效和价格的基础上对业务展开竞争。这是促进整蛊闭门改进服务质量的基本策略。
④有使命感的政府：转变规则导向型组织。即内部放松管制，废除大量规章制度，从根本上简化行政制度，让管理者在法律范围内自由寻找完成使命的最好方式。
⑤结果导向型政府：按效果而不是按投入拨款。即将责任从投入转移至产出和结果，并测量政府机构的绩效，制定组织目标，实行奖励机制和绩效考核机制。
⑥顾客驱使的政府：满足顾客的需要而不是官僚政治的需要。将服务对象视为顾客，调查顾客心声，制定顾客服务标准，让顾客来选择提供服务者。
⑦企业家政府：挣钱而不是花钱。不仅将精力放在花钱上，而且还要求得到投资回报，通过使用企业基金，公共收益和创新基金等激励手段来激励管理者在花钱的同时也关注挣钱。
⑧预防型政府：预防而不是治疗。追求的是预防问题而不是提供解决问题的服务。通过使用战略规划、未来愿景等手段，为政府提供更好的预见能力。
⑨分权的政府：从等级制到参与和协作。通过组织或体制将权力下放，鼓励低层政府拥有更多决策权。通过组织等级扁平化、使用团队以及劳资伙伴关系等方式来授权下级政府官员。
⑩以市场为导向的政府：通过市场力量进行变革。通过市场力量而非行政机制来解决问题，采取财政激励手段激励企业、第三部门、个人等组织解决社会问题。
8.科层制效率低下的原因（2018年北京师范大学；2019年云南大学）
育明教育解析：简答题解释型语言可以适度删减，论述题则要保持完整。由于专业课绝大多数都是主观题，所以“内容”与“形式”同样重要，即知识点要全面，卷面要干净整洁。
科层制又称官僚制，是指德国社会学家韦伯根据纯粹理想型观点提出的一种高度正式化，严格的层级节制的人事组织体制。
科层组织的特征如下：
（1）在科层组织中。每一位成员都有固定和正式的执掌，依法行使职权。
（2）层级节制的权力体系。每个组织成员都知道要从哪里去的命令和把命令传递给谁（3）人员的工作行为以及人员间的工作关系，必须遵循法规的规定，不得掺杂个人好恶情感
（4）科层组织内的职位，按人员的专长作合理的分工，职位的获得主要以技能为主（5）职业化倾向。人员加入组织，是根据自由契约的方式，并经公开的考试合格后加以人用，行政机关不能随便结束契约越关系
（6）人员的工作报酬也有明文规定，有固定的薪俸制度
（7）着重效率。行政人员的工作要明确、快速、具体，有充分的经验和知识
困境：
（1）决策权威集中化造成管理的恶性循环
决策权威集中化强调统一指挥、单一权威，反映主管对人员失控的忧虑和不信任，促成机关金字塔结构，层级越多，权力越集中，上下沟通越困难，加重主管对人员失控的忧虑和不信任，造成管理的恶性循环
（2）专业分工原则的扭曲
专业分工原则使垂直的权力斗争水平化，再加上上下层级的线形关系，使组织内部，组织之间的网络联系更困难，会影响到政府机关间的协调合作，
（3）制式化对组织效能的可能影响
制式化是指借工作内容、程序或法规的标准化，来确保人员行为的一致性。制式化可能产生的不良影响：其一制式化可能会压抑工作人员的创新动机，造成效能下降；其二是当制式化的作用超过其处理能力时，科层的反功能出现，效能下降。
（4）遏制组织学习
科层组织遏制组织学习的表现：①学习动机的钝化②偏好经验学习③形成组织学习的断层
（5）科层价值与民主价值的冲突
科层价值与民主价值是相背离的
科层的价值是：层级节制；资深优先；命令服从；单一意见、整体发展；唯展业资格；讲求机密；对事不对人；讲求专业技能；
民主的价值是：平等性；政权转换更替；自由选择；多元意见、多元发展；公民资格的普遍参与；凡是公开透明；社群一体意识；由选举而获其正当性
（6）科层价值与人格成长的冲突
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（7）防卫型的官僚人格
防卫型官僚人格在不同层级中有不同的表现：
①高层管理者在组织晋升的过程中，养成要求完美、冷酷、自爱的个性，有高处不胜寒的孤立感；
②中层管理者为贯彻任务，而有敌对、压抑、支配的行为倾向
③基层人员有自我放任或听天由命的行为倾向
传统科层组织失效的原因：
（1）环境因素
当代科技的快速发展与分化使组织间的相互依存性高于竞争性，环境的变迁影响和制约着组织的发展
（2）人口特质的改变
现代社会已经发展成为具有高教育水准的社会，人员文化素质的提高，使得人们的公共变换率大大提高；由于交通工具的便利，人们不再局限在一个地方或一个单位工作一辈子（3）工作价值观的改变
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