2008 International Conference on Management Science & Engineering (15th) September 10-12, 2008 Long Beach, USA

Research on the Theories and Methods of Government Administration Process Diagnosis and Reengineering
ZHANG YongHE Hai-yan
School of Management and Economics, Beijing Institute of Technology, P.R.China, 100081 Abstract: This paper points out that the government administration is a dual process of business management and information management, and the government business process is the exterior of the information flow, however, the traditional bureaucracy structure of government organization is contradict with the network demands of information flow, which inevitably leads to the government administration efficiency losses; based on the business process reengineering theory, diagnosing the existing problems in government administration through the information flow, as a starting point affects the realization of the government business process reengineering, and provides the general methods and models. Keywords: government, administration process, information flow, processes diagnosis, process reengineering fresh start. In 1993, he and Champy the United States management masters wrote the reengineering enterprises, set off a worldwide reengineering campaign. According to the definition on the business process reengineering given by Champy and Hamer, so-called business process reengineering, that is a thorough rethinking the nature of the business processes and redesign the business processes to achieve dramatic changes in quality, cost, service, speed performance and so on [3].In the mid-1990s, many developed countries invented government process reengineering (GPR) [4] based on the ideas and methods of business process reengineering(BPR) [5], analyzing and redesigning the work processes and procedures inside and between organizations. In the business processes transformation and organization restructuring process, minimum or even elimination of non-value added activities, the abolition of many traditional middle government departments, compression, simplification and integration of a variety of business processes, reduced job classifications, cultivated a multiple function of staff, so the government's management efficiency have been significantly improved [6]. The current government management is in the request of information networks and system linkage integration. The traditional government management is difficult to adapt to the requirements of social development, so that the organizational structure and management changes are inevitable. Network reform emphasizes on jumping out of the traditional way of thinking, but focuses on the processes and cross-functional horizontal integration, aimed at improving the overall effectiveness. Generally speaking, the diagnosis and redesign of management business process are two important works [7]. This paper presents a method which takes information flow diagnosis and reengineering as the core and the starting point, to affect the entire business process reengineering. This method does not like the reorganization theory that will completely abandon the current business processes of the existing system, and that it can better adapt to current government institution system, and help the government to find the problems in the process of information transmission, the shortcomings in the business processes, and through rationalizing the information system process, redesign

1 Introduction
Business process reengineering (BPR) causes for concern in academic of management after 1980s, increasingly closer to the management information system after 1990s. Erenow, the main characteristic of government reform is that many countries introduced the quality, cost, customer satisfaction, with the concept of enterprise management into the government administration, determined pursuit of innovation, thrifty, efficient, high-quality government management objectives, and opened the new tide of introducing spirit of enterprise management into government management. Accordingly, it was proposed to establish a business-government [1], and get rid of the habit heavy output with light input, establish cost-effective, pay attention to the effect of the administration input; introduction of the competition mechanism, and change the rules-driven government into mission-driven; decentralization, mandate its budget authority by the of task of various departments, giving it the power of self-management; foster a sense of service and the sense of competition, give audience to the people, strengthen peoples supervision on the government [2]. Business process reengineering is the first born in the United States from the information technology expert Michael Hammer in Massachusetts Institute of Technology in 1990, in Recycling: not automatic, but
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the entire business process to improve operating efficiency of the management system.

2 The relationship between government business process and the information flow
Workflow is a series of continuous and disciplinary action that happens or performs in certain methods, resulting in some specific outcomes. Workflow is usually regarded as activities of the process changing inputs to outputs in a system. Government workflow is a collection of steps in the government administration, for a specific target, revealing the stability of the administration activities [8]. The government information flow, importing all kinds of information in relevant government departments and the general public needs as a starting point, is a series of activities in which the relevant government departments handle information finally and create satisfied public services as the end [9]. Chester I. Barnard views that the existence and activities of an organization is on the understanding of information communication, and it is only communication that combines inclination of individual collaboration and organizational goals [10]. Publications as administrative behavior and public administration of Herbert A. Simon [11] , in which the important of information connection is stressed time after time, point out that personal decision will not be affected by management process without communication. Communication theory[12] was introduced into government administration research in 1960s and 1970s. It considers the government administration as a harmonized activity automatically guiding to the objects, and the essence of the activity is acquiring, processing and utilizing information. All functions of government system are achieved by the interchange of information. So, the represents of communication theory suggest that the fundamental logical entrance for research on government system should be information, or we could not find real mechanism of the circulation of government system [13]. Management activities must be a dual process of material flow and information transmission, government not only controls the executive power, but also controls the society information [14]. Government business process will generate a large number of information at every stage, and information flow process is the true reflection of the government business process. After the scientific management ideology by Frederick Winslow Taylor [15] successfully applied in technical areas, managers have to face new challenge, that is, information flow and communication is much more difficult to control than technical improvement. That is also a challenge to Max Webers bureaucracy theory. Government organizations prevalently known to all are present in bureaucracy, however, the government information flow requires a network structure which is contradict to it. The impediment of information flow and distortion of information transfer in government departments is a major cause of the efficiency loss in
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government administration. Therefore, a good approach is to discover the existing problem of management system by the use of information flow chart, to ensure the feasibility of the new system through the business processes design cycle. The ultimate goal is that advanced information technology should be used in government functions rebuilding and structural adjustment, promoting the efficiency, science and democracy of government administration, changing the traditional concept of management [16].

3 Government business process diagnosis and the principles of reengineering

Stanley Weir points out, seven aspects including information, suggestion, prescription, citation, implementation, evaluation and termination should be accomplished in the executing of policy [17]. Every policy process is a dynamic process of government system. Policy research, by the analysis on functions of policy process using the function process theory [18], ushers in the mechanism of government system from input to output, and sums up the fundamental problems of policy process [19], which is propitious to dynamic analysis and entirely research on policy presentment, and makes up the deficiency in common political system theory [20] and policy research process. 3.1 Primary discussion over process diagnosis and reengineering framework of administration Government management organization is a complex social system, comprised by governmental organizations and government staff, and the operation of this system is a dynamic process and government phenomenon. It has the general attributes of a system, and the concept consists of five basic elements: function, component, structure, operation and environment [21]. At the same time, the government contains a number of departments, a variety of factors, a variety of resources under certain conditions, interacting with one another. In such a dynamic system, organization, technology, people and information is the state function characterizing the system. 3.2 Diagnosis and reengineering process based on the information flow Diagnosis and redesign of the information flow throughout the design process is in fact the comparison and optimization process of information flow of reality system, information demand processes and the new system information flow. The role of information is particularly sensitive among them, also an important parameter to diagnose the government's management system. Information system in a government business process, as in the human nervous system, is as a whole. Information system can be sub-sector, at different levels, and they are all interrelated. Information can flow cross-sector and inter-level, and

government organizations at all levels should be in accordance with their duties and the needs, acquiring the relevant information of various departments and at all levels to make their own work fit the overall harmony, and improve efficiency. If there are practical business process problems in the system, the most obviously they would be displayed in the corresponding information flow process. We can analysis and make the existing information flow chart of the management system, describing the flow of information within the system, including information flow name, in and out business of the system. Reflecting the status of the flow of information systems, at the same time drawing a clear picture of government business process, are the key and the basis for diagnosis and redesign of the information management system. Fig.1 is an overall redesign framework of the government business process: first, abstract information flow chart in accordance with business process, and inspection the composition of information flow chart follow certain rules, and diagnosis the composition of information flow, then redesign information process, feedback business processes. Business process redesign can be optimized through repeated several times, finally establishing and identifying new business processes. The information demand process is a necessary transition to the new system design, and it makes sure that the new system is designed from the administrative reality, avoiding unrealistic, facilitating the management staff to recognize and to accept the new system. At the same time, the diagnosis and design process of the entire information flow reflects the information to the local optimization, and describes the existing staff's views on the existing system and the needs of the new information system. System designers can collection requirement information by some methods, and other departments should fully provide relevant information, and synchronously specify the role of the information, to

original business process

abstract

information flow chart

diagnosis government business process redesign information flow redesign

feedback

not

yes yes or not

new government business process

Fig.1 Government business process redesign framework based on the information flow

ensure that each business can be completed efficiently. This approach avoids human factors of the possible concealment for the evasion of responsibility, and facilitates the mobilization of relevant staff involved in the management and the initiative of new system design; through the full analysis on the collection of information, organizational designers can found some issues of government administration and the reasons for the conflict, find the clues to solve the problem. The basic process of information flow diagnosis and design method shown in Fig.2. Evaluation of the existing system, diagnosis of the information flow should be followed by certain criteria, identifying existing problems of the system, providing specific measures to resolve it. Information flow

contrast the old/new system

information flow chart in actual system

actual system information flow

analysis and comparison

problem find system reorganization

redesign information flow chart of new system

information flow of specific demand flow chart of demand information

local optimization compared with the overall optimization Fig.2 The process of information flow diagnosis and redesign methods

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diagnostic criteria include: (1) Integration. Governmental organization is a synergistic and integrative system. In the redesign process of information flow in new system, the link between various departments should be analyzed and clarified, so that the transmission of information flow can be expedite rather than fragmented. (2) Open. In order to adapt to the demands from the external environment and internal changes, the organizations should have a good opening, so as to quickly accept external information, and make an appropriate response. Every post within the government, the staff can understand the dynamic information of the whole system, such as the government objectives, work status, the decision-making process and progress. (3) Veracity and completeness. Veracious and complete information is the reference for effective management decision-making. So, the collection and processing of data should be individual responsibility, and fixed channels of contact should be established, enhancing communication and coordination. Reconstruction of information flow process can be divided into four steps. Step1: according to the results of the survey, the information demand of the new system will be determined. In particular, the needs to increase or cancel information flow should be carefully analyzed and decided. Step2: to determine the detailed attribute and time requirements of information flow, as well as the business processes to receive and send and the staff, including available information, also new information flow. Various forms used and transmitted in system should be unified in format, which should be complete in content, eliminating reduplicate information. Step3: to design information transmission channels and transfer mode. Transmission link should be least, so as to ensure timely and veracious information transmission. Step4: to inspect correlation. Organize the managers in various departments and the staff, inspecting the reasonableness of data content, transmission channels, carrier forms in the increased and modified information flow article-by-article. If the design is not agreed with, the discussions can be designed according to these officers, taking into account the overall system optimization, readjusting the design in the information management system, and redrawing the information flow and information flow chart list of the new system. In order to achieve optimal ultimately, the process can be repeated (see Fig.3).

start defining the information demand analysis system attribute (information flow, time, process, personnel)

information transmission channels and methods inspecting correlation new system process

no

end Fig.3 Process of information flow

4 Methods and steps of government business process reengineering

Communication, the status of information flow, must be the core of government system analysis, for the basic unit of government system research is information. In other words, government system can not work without
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communication. Government communication theory regards the government system as self-guide automatic control system by theories of information and cybernetics, analyzing the government administration process by way of information transfer, process, saved and utilized. In this theory, every policy process is a closed circuit status, namely input-transform-output -feedback-re-export. In fact, it is also a procedure of government information transfer, process, transform, the flow of information. Government information flow reengineering is built on government reengineering theory and assumption. Government as the main body of national domination machine, whose organization and operation is affected by national politic system, society and economic development. The effectiveness of government administration is decided by whether the organizational structure is consistent with the changing environment, thereby exerting the function to activate the organization. Accordingly, many countries in the world highly in pursuit of Government Reengineering projects from 1990s which evolved into a worldwide reengineering tide. Information, continuously generated, collected, processed and transferred inside and outside government, combines the operations in system, forming a complicated and correlative and integrative system. The object of government information reengineering is to increase the streakiness of work, to enhance the rationality of the content, to raise the efficiency and to simplify the administration of organization 4.1 The basis of process reengineering Information flow reengineering is to change the transfer route of the operation information in the system.

The redesign of business process of government administration may avoid the traditional bureaucracy ideology and cross sectional restriction by the redesign of information flow, or the generation, collect, process and transfer of information. In the redesign of information flow, the starting point is practical need of government administration, in term of exactness, integrity, system and exoteric principle which breaks the bureaucracy ideology and cross sectional restriction virtually, laying the foundation for the flat organization design. The investment of human and resource is limited in certain period, so the government should change and innovate by the practical situation in proper sequence. Among the numerous government processes, the one which contribute the most to government and society should be chosen as the object process [22]. By reengineering business process, the highest work efficiency will be achieved. The following questions should be mentioned in the selection of object process: Which is the most valuable process with highest improvement potential? Which is core process and critical process in the operation of government system? Can they be selected as object process? Three types of process can be defined by analyzing the valuable time/total time rate: valuable process, indispensable process without add-on value, time waste process. In order to understand the interaction between object process and other process, we must review all process in a whole system view [23], further to consider whether the business process redesign assort with the potential income. Good preparation, consolidating the process, object and schedule of the change, controlling the implementation and quality by scientific and systematic method are all for the success of government process redesign. Government administration process is assumed as a network structure [24], which needs to be reengineered. The objects will be attained by analyzing and modifying the network structure based on the information flow. The government administration process is made up of regular administration activities, whose ultimate goal is to actualize all the functions of government system. The foundation of process redesign includes concreting the administrate business process, separating every administrate business activities and sub-activities (do not mix the activities of different process with different characters), maneuverability (the un-manipulated activities are redundant and waste, and should be deleted to define the functions) and simplification. 4.2 Description of government process and network structure Government process contains strategic process, administration process and assistant process as Fig.4. Strategic process is used to organize and exploit the future by all levels of government, such as geopolitics,

strategic process administration process

assistant process Fig.4 Government process

society, economy and culture development blueprint, and government process development in different levels of government. Administration process is used for operating daily administrative functions in government, such as policy making, services for the public and interest groups [25] and communities. Assistant process is the safeguard process for strategic process and administration process, such as human resource management, financial management and information management process. The above concept is based on administrative level; however, government processes in specific levels are not linear, network structure instead. (1) The administration process P is constituted by information medium, a series of management works Vi ordered by administration information F , aiming at completing some administrative assignment. For example, resolution management process, supervision process, message control process. On one hand, the government is formed by an organic aggregate of different administration business process with a certain relation, and the analysis on a single process helps to business process reengineering; on the other hand, government business process may also be regarded as some organic aggregate providing certain administrative function independently, forming a network process. Business process P is constituted of sub-process with certain administrative function independently as Fig.5: T P = (P (1) 1, P 2 ,..., P n) (2) Government process P , network structure S is a dual structure: S = ( P, R ) (2) Here: P is the administration business sub-process set: P = ( Pi | i = 1, 2,..., n) , n is the number of sub-process; R = ( Ri j | i = 1, 2,..., n; j = 1, 2,..., n) R is

the relationship set of administration process, Rij means the relationship between sub-process i and j . According to previous two steps of description, the k business sub-process is Pk = (Vk 1 , Vk 2 ,..., Vkm ) , m is the number of tasks involved by k sub-processes, then: Fk = ( f ( K )ij ) n n is a

n n order matrix with its main diagonal elements 0, then: S = ( P, R ) = (V , F ) (3)

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Here: the variable V is the set of administration business activities Vij , F is the set of information flowing among different activities, in which certain Vij can be 0, but the row is not empty. F = ( Fk | k = 1, 2,..., n) , n is the number of sub-process in some specific administration business process. V11 V12 ... V1m V V ... V2 m 22 (4) V = 21 : : : : Vn1 Vn 2 ... Vnm nm
P 1 P2 P3 P6 Pn

start

design goals

original process

process decomposition and integration

optimize and redesign

P4 P5 P7 Fig.5 Sub-process with administrative function

new process not satisfy or not yes implementation not

4.3 Analysis method (1) Rendering the original process network, based on the information flow redesign result, recording the existing problems in process management, to be taken into account in the process reengineering. (2) The use of ESCRI methods in process reengineering (see Tab.1).
Tab.1 Summary of ESCRI EEliminate cancel the functions no longer need and activities without added value SSimplify simplify the complex process CCombine merger indispensable process R Rearrange change the order with other task increase the function of actual needs IIncrease

end Fig.6 Steps of business process redesign

' management operation sub-process, Rij Rij .

4.4 Reengineering steps Administration business process redesign is to redesign the original management process and to optimize the operation (see Fig.6). Step1: based on the flow of information, to determine the design goals of all the administration business processes. Step2: divided the administration business processes into a number of small sub-processes for mapping respectively. Then summary out the network structure map of the original administration business process. The map should display the information flow status f ij

Step4: based on the information flow chart, using ESCRI method, to redesign the optimized process network structure map, redrawing process network structure map. Step5: to evaluate process network structure map. If fij' < f ij , ( f ij' and f ij are respectively the information flow between sub-process i and sub-process j after and before process reengineering), the optimization is successful, it is necessary to judge whether the new process operate regularly to achieve the target, and whether the new scheme contradict with other administration activities. Step6: to repeat the steps until the most satisfied process is achieved.

between different administration business processes. Step3: to optimize the entire process network structure map, until all the relationships between administration business sub-process, as well as the information flow f ij between management operations achieve optimality. In the optimization process, when Pi is existent but unnecessary, Rij = 0; when the order of business processes Pi and Pj need to be adjusted, corresponding to the relationship set between new
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5 Conclusion
Government information process reengineering is a specific method that can be used for the actual operation. The design of the whole system is a dynamic and amendment process. Design information process by clues of information flow chart generated at different stages, and further through the analysis and adjustment of process network structure, redesigning the business, this reengineering process essentially set aside the original

hierarchical structure and the sector partition, diagnosis and redesign the process by actual business needs, to enhance efficiency of government administration system. Redesign, optimization and implementation the government management system in order to achieve the policy objective-oriented systems, and make the design goals of every administration business process clear, practical steps, strengthening the scheme of the plan, and the control of implementation and inspection. However, government process reengineering is not a work once for all thing, new requirements will arise in the changing environment in government administration. Therefore, the government information analysis and reengineering will continue to work step by step.

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