美国政府购买服务的制度经验对我国事业单位改革的启示
|
摘要
事业单位是具有中国特色的一种组织,主要为社会提供公共产品和服务。由于涉及面广和任务艰巨,其改革进度较为缓慢。而目前大力推进的分类改革存在归类标准模糊、顽疾难以解决等问题。在美国,与我国事业单位作用相似的是政府承包商。美国政府通过购买服务宪法性和行政性法律的顶层设计,有效促进公共服务供给,其制度经验对我国相关改革的启示可总结为四方面:明晰政府购买服务合同与私人合同的异同;清晰界定承包商的权责范围,明确管控政府购买服务的公务员职责,通过竞争机制、绩效管理、第三方监督强化承包商责任落实。但是美国政府购买服务存在绩效评估未落实、竞争机制不完善、创新空间有限等问题。在总结美国经验的基础上,我国事业单位改革可以进一步完善以下四方面工作:清晰界定权责、引入竞争机制、推进绩效管理、保持组织独立。
Public institutions as a type of organizations with Chinese characteristics refer to ones which can provide products and services for social publicity. Due to wide scopes and hard tasks it involved,the reform received slow progress. And in the classified reform with great efforts,there are many problems such as blur classification standards and barriers hard to overcome. In the U.S.,government contractors play the similar role like our institutions. The American government can effectively promote the supply of public service through purchase under the constitutional and administrative law top-level design. The Enlightenment of its institutional experience on our related reforms can be summed up in four aspects: making clear similarities and differences between the government purchase service contract and the private contract; clearly defining the scope of the power and responsibility of the contractor,and clarifying the duty of civil servants who control the government purchase. The responsibilities of contractors are to be strengthened through competition mechanism,performance management and third party supervision. However,there are also issues during the US government procurement service,for instance,evaluation system failed to be implemented,the competition mechanism less perfect,and the innovation space limited. From the experience of the United States,we could improve the following four aspects in the reform of China's institutions: a clear definition of the power and responsibility,the introduction of the competition mechanism,the promotion of performance management,and the maintenance of organizational independence.
Public institutions as a type of organizations with Chinese characteristics refer to ones which can provide products and services for social publicity. Due to wide scopes and hard tasks it involved,the reform received slow progress. And in the classified reform with great efforts,there are many problems such as blur classification standards and barriers hard to overcome. In the U.S.,government contractors play the similar role like our institutions. The American government can effectively promote the supply of public service through purchase under the constitutional and administrative law top-level design. The Enlightenment of its institutional experience on our related reforms can be summed up in four aspects: making clear similarities and differences between the government purchase service contract and the private contract; clearly defining the scope of the power and responsibility of the contractor,and clarifying the duty of civil servants who control the government purchase. The responsibilities of contractors are to be strengthened through competition mechanism,performance management and third party supervision. However,there are also issues during the US government procurement service,for instance,evaluation system failed to be implemented,the competition mechanism less perfect,and the innovation space limited. From the experience of the United States,we could improve the following four aspects in the reform of China's institutions: a clear definition of the power and responsibility,the introduction of the competition mechanism,the promotion of performance management,and the maintenance of organizational independence.
引文
[1]新华社.事业单位登记管理暂行条例[J].人事与人才,1998,(12):42-43.
[2]党云龙.事业单位改革相关问题研究[J].财经问题研究,2015,(s1):94-98.
[3]翩迁.党政机构改革的原则、方案与步骤[J].党政论坛,1993,(10).
[4]王一程,贠杰.中国行政管理体制改革的进展与面临的挑战[J].政治学研究,2006,(3):1-7.
[5]国务院办公厅.61.怎样推进事业单位改革?[EB/OL].(2010-03-19)[2016-08-30].http://www.gov.cn/2010lh/content_1559819.htm.
[6]新华社.人力资源和社会保障部:继续加快推进事业单位分类改革[EB/OL].(2014-05-21)[2016-08-30].http://www.gov.cn/xinwen/2014-05/21/content_2684159.htm.
[7]姜爱林.事业单位养老保险制度改革为何困难重重——事业单位养老保险制度改革试点:推进状况、制约因素与破解对策[J].天津行政学院学报,2010,12(3):53-61.
[8]郑秉文.机关事业单位养老金并轨改革:从“碎片化”到“大一统”[J].中国人口科学,2015,(1):2-14.
[9]朱恒鹏,高秋明,陈晓荣.与国际趋势一致的改革思路——中国机关事业单位养老金制度改革述评[J].国际经济评论,2015,(2):9-28.
[10]赵兵.事业单位改革,健步迈向公益性[N].人民日报,2017-10-18(13).
[11]财政部,中央编办.关于做好事业单位政府购买服务改革工作的意见[J].当代农村财经,2017,(4):39-41.
[12]中共中央,国务院.中共中央国务院关于分类推进事业单位改革的指导意见[N].人民日报,2012-04-17(1).
[13]广州市人力资源和社会保障局.关于全面深化事业单位人事制度改革的指导意见(2016-2020年)[EB/OL].(2016-06-09)[2016-08-30].http://www.gdrsrc.com/gwy/shiye/zhengce/4402.html.
[14]何峥嵘.行政法治视野中的事业单位改革[J].行政与法,2015,(1):43-48.
[15]DAVEY J,GATENBY A.Government Procurement Review[M].5th ed.London:Law Business Research,2015:vii.
[16]GUTTMAN D.Science’s Troubled Legacy[EB/OL].(2009-01-12)[2017-11-01].https://scienceprogress.org/2009/01/sciences-troubled-legacy/.
[17]WANG Z.The Developing Rule of Law in China[J].Harvard Asia Quarterly,2000,IV(4).
[18]OFFICE OF FEDRAL FINANCIAL MANAGEMENT,Circular A-102[EB/OL].(1997-08-29)[2017-12-05].https://www.whitehouse.gov/sites/whitehouse.gov/files/omb/circulars/A102/a102.pdf
[19]US SMALL BUSINESS ADMINISTRATION.Small Business Procurement Scorecards[EB/OL].(2016-05-20)[2018-01-03].https://www.sba.gov/contracting/finding-government-customers/see-agency-small-business-scorecards.
[20]US SMALL BUSINESS ADMINISTRATION.Government Wide-Performance FY2015 Small Business Procurement Scorecard[EB/OL].(2016-03-14)[2018-01-04].https://www.sba.gov/sites/default/files/files/FY15_GOVT-WIDE_SB_Procurement_Scorecard_Public_View_FINAL.pdf.
[21]US SMALL BUSINESS ADMINISTRATION.Record Year for Diversity in Small Business Federal Contracting[EB/OL].(2016-06-17)[2018-01-04].https://www.sba.gov/sites/default/files/record-year-for-diversity-in-sb-fed-contracting.pdf.
[22]GUTTMAN D.Privatization,Public Purpose and Private Service.OECD(Organization for Economic Cooperation and Development[J],Journal on Budgeting,2003,2(4).
[23]TAXPAYER AGAINST FRAUD.Top 20 Cases[EB/OL].(2012-03-20)[2017-12-29].http://www.taf.org/top20.htm.
[24]COMMITTEE ON OVERSIGHT AND GOVERNMENT REFORM-MAJORITY STAFF.More Dollars,Less Sense:Worsening Contracting Trends under the Bush Administration[R].US House of Representatives,June 2007:3.
[25]COMMITTEE ON GOVERNMENT REFORM-MINORITY STAFF.Waste,Fraud,and Abuse in Hurricane Katrina Contracts[R].US House of Representatives,August 2006:8-9.
[26]FRAUNHOFER INSTITUTE FOR SYSTEMS AND INNOVATION RESEARCH.Innovation and Public Procurement:Review of Issues at Stake[R].Fraunhofer Institute Systems and Innovation Research,December 2005.
[27]改革杂志社专题研究部.中国事业单位分类改革轨迹及走向判断[J].改革,2012,(4):5-15.
[28]李志红.深入学习贯彻十八大精神坚定不移地推进行政体制改革[J].中国机构改革与管理,2013,(1):11-13.
[2]党云龙.事业单位改革相关问题研究[J].财经问题研究,2015,(s1):94-98.
[3]翩迁.党政机构改革的原则、方案与步骤[J].党政论坛,1993,(10).
[4]王一程,贠杰.中国行政管理体制改革的进展与面临的挑战[J].政治学研究,2006,(3):1-7.
[5]国务院办公厅.61.怎样推进事业单位改革?[EB/OL].(2010-03-19)[2016-08-30].http://www.gov.cn/2010lh/content_1559819.htm.
[6]新华社.人力资源和社会保障部:继续加快推进事业单位分类改革[EB/OL].(2014-05-21)[2016-08-30].http://www.gov.cn/xinwen/2014-05/21/content_2684159.htm.
[7]姜爱林.事业单位养老保险制度改革为何困难重重——事业单位养老保险制度改革试点:推进状况、制约因素与破解对策[J].天津行政学院学报,2010,12(3):53-61.
[8]郑秉文.机关事业单位养老金并轨改革:从“碎片化”到“大一统”[J].中国人口科学,2015,(1):2-14.
[9]朱恒鹏,高秋明,陈晓荣.与国际趋势一致的改革思路——中国机关事业单位养老金制度改革述评[J].国际经济评论,2015,(2):9-28.
[10]赵兵.事业单位改革,健步迈向公益性[N].人民日报,2017-10-18(13).
[11]财政部,中央编办.关于做好事业单位政府购买服务改革工作的意见[J].当代农村财经,2017,(4):39-41.
[12]中共中央,国务院.中共中央国务院关于分类推进事业单位改革的指导意见[N].人民日报,2012-04-17(1).
[13]广州市人力资源和社会保障局.关于全面深化事业单位人事制度改革的指导意见(2016-2020年)[EB/OL].(2016-06-09)[2016-08-30].http://www.gdrsrc.com/gwy/shiye/zhengce/4402.html.
[14]何峥嵘.行政法治视野中的事业单位改革[J].行政与法,2015,(1):43-48.
[15]DAVEY J,GATENBY A.Government Procurement Review[M].5th ed.London:Law Business Research,2015:vii.
[16]GUTTMAN D.Science’s Troubled Legacy[EB/OL].(2009-01-12)[2017-11-01].https://scienceprogress.org/2009/01/sciences-troubled-legacy/.
[17]WANG Z.The Developing Rule of Law in China[J].Harvard Asia Quarterly,2000,IV(4).
[18]OFFICE OF FEDRAL FINANCIAL MANAGEMENT,Circular A-102[EB/OL].(1997-08-29)[2017-12-05].https://www.whitehouse.gov/sites/whitehouse.gov/files/omb/circulars/A102/a102.pdf
[19]US SMALL BUSINESS ADMINISTRATION.Small Business Procurement Scorecards[EB/OL].(2016-05-20)[2018-01-03].https://www.sba.gov/contracting/finding-government-customers/see-agency-small-business-scorecards.
[20]US SMALL BUSINESS ADMINISTRATION.Government Wide-Performance FY2015 Small Business Procurement Scorecard[EB/OL].(2016-03-14)[2018-01-04].https://www.sba.gov/sites/default/files/files/FY15_GOVT-WIDE_SB_Procurement_Scorecard_Public_View_FINAL.pdf.
[21]US SMALL BUSINESS ADMINISTRATION.Record Year for Diversity in Small Business Federal Contracting[EB/OL].(2016-06-17)[2018-01-04].https://www.sba.gov/sites/default/files/record-year-for-diversity-in-sb-fed-contracting.pdf.
[22]GUTTMAN D.Privatization,Public Purpose and Private Service.OECD(Organization for Economic Cooperation and Development[J],Journal on Budgeting,2003,2(4).
[23]TAXPAYER AGAINST FRAUD.Top 20 Cases[EB/OL].(2012-03-20)[2017-12-29].http://www.taf.org/top20.htm.
[24]COMMITTEE ON OVERSIGHT AND GOVERNMENT REFORM-MAJORITY STAFF.More Dollars,Less Sense:Worsening Contracting Trends under the Bush Administration[R].US House of Representatives,June 2007:3.
[25]COMMITTEE ON GOVERNMENT REFORM-MINORITY STAFF.Waste,Fraud,and Abuse in Hurricane Katrina Contracts[R].US House of Representatives,August 2006:8-9.
[26]FRAUNHOFER INSTITUTE FOR SYSTEMS AND INNOVATION RESEARCH.Innovation and Public Procurement:Review of Issues at Stake[R].Fraunhofer Institute Systems and Innovation Research,December 2005.
[27]改革杂志社专题研究部.中国事业单位分类改革轨迹及走向判断[J].改革,2012,(4):5-15.
[28]李志红.深入学习贯彻十八大精神坚定不移地推进行政体制改革[J].中国机构改革与管理,2013,(1):11-13.