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Organisation und Algorithmus
(2021)
Der vorliegende Beitrag analysiert, wie Organisationen Algorithmen, die wir als digitale Beobachtungsformate verstehen, mit Handlungsfähigkeit ausstatten und damit actionable machen. Das zentrale Argument lautet, dass die soziale Relevanz digitaler Beobachtungsformate sich daraus ergibt, dass und wie sie in organisationale Entscheidungsarchitekturen eingebettet sind. Diesen Zusammenhang illustrieren wir am Beispiel des österreichischen Arbeitsmarktservice (AMS), der 2018 einen Algorithmus einführte, um die Integrationschancen arbeitsuchender Personen zu bewerten. Der AMS steht dabei stellvertretend für aktuelle Bestrebungen vieler Organisationen, algorithmische Systeme einzusetzen, um knappe öffentliche Ressourcen vermeintlich effizienter zu distribuieren. Um zu rekonstruieren, wie dies geschieht, zeigen wir, welche Operationen des Kategorisierens, Vergleichens und Bewertens das algorithmische Modell vollzieht. Darauf aufbauend demonstrieren wir, wie das algorithmische Modell in die organisationale Entscheidungsarchitektur eingebunden ist. Erst durch diese Einbindung – die Möglichkeit, Unterschiede für andere, relativ stabil erzeugte Entscheidungen zu machen – entfaltet das digitale Beobachtungsformat soziale Relevanz. Abschließend argumentieren wir, dass algorithmische Modelle, wie sie am Fall des AMS beobachtet werden können, dazu tendieren, sich in Organisationen zu stabilisieren. Dies begründen wir damit, dass die organisationalen Lernchancen im Umgang mit dem Algorithmus dadurch reduziert sind, dass dieser in einem Bereich zum Einsatz kommt, der durch Technologiedefizit und koproduktive Leistungserstellung geprägt ist.
Over the past decade, an increasing number of public organizations involved in fisheries and marine environmental management in Europe have changed their formal coordination structures. Similar reorganizations of formal coordination structures can be observed for organizations at different administrative levels of governance with different mandates across the policy cycle.
Against the backdrop of this phenomenon, this PhD thesis is interested in exploring how these similar organizational reforms can be explained and why the formal coordination structures for fisheries and marine environmental management have been reorganized in the cases of the International Council for the Exploration of the Sea (ICES), the Directorate-General for Fisheries and Maritime Affairs of the European Commission (DG FISH), the Norwegian Institute of Marine Research (IMR) and the Swedish Agency for Marine and Water Management (SwAM). Accordingly, the objective is to shed light on how public organizations actually “behave” or “tick” in the face of increasingly complex coordination challenges in fisheries and marine environmental management.
To address these questions, the thesis draws on different theoretical perspectives in organization theory, namely an instrumental and an institutional perspective. These theoretical perspectives provide different explanations for how organizations deal with issues of formal organizational structure and coordination. In order to evaluate the explanatory relevance of these theoretical perspectives in the cases of ICES, DG FISH, the IMR and the SwAM, a case study approach based on congruence analysis is applied. The case studies are based on document analysis, the analysis of organizational charts and their change over time, as well as expert interviews. The aim of the thesis is to contribute to the coordination debate in the marine policy and governance literature from a hitherto omitted public administration and organization theory perspective, as well as explaining coordination efforts at the organizational level with an organization theory approach.
The findings indicate that the formal coordination structures of the organizations studied have not only changed to solve coordination problems in fisheries and marine environmental management efficiently and effectively, but also to follow modern management paradigms in marine governance and to ensure the legitimacy of these organizations. Moreover, it was found that in the cases of ICES, DG FISH, the IMR and the SwAM, the organizational changes were strongly influenced by external pressures and interactions with other organizations in the organizational field of fisheries and marine environmental management in Europe. Driven by forces of isomorphism, a gradual convergence of the formal horizontal coordination structures for fisheries and marine environmental management of the organizations studied can be observed. However, the findings also indicate that although the organizational changes observed may convey a reaction to changing environments, they do not necessarily reflect actual policy change and the implementation of new management concepts.