公共项目绩效损失测度及治理:一个案例研究
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摘要
政府绩效评估的核心目的是改进绩效。政府绩效不仅可以通过绩效评估的结果来测度,也可以从绩效损失的角度进行审视,这两种视角代表着绩效改进的不同逻辑。在以公共价值为基础的政府绩效治理理论下,政府绩效损失被用于描述绩效生产过程中由于管理不善、价值偏离或冲突而引起的绩效减少。本文从现有文献出发,阐述了政府绩效损失的内涵演变,从公共价值层面和管理层面界定了第I类和第II类绩效损失,在价值链视角下构建了公共项目绩效损失的测度框架,以J县政府与某非营利组织等合作建设移民扶贫新村项目为案例,测度了公共项目的绩效损失,并描述了绩效损失的分布。本文从绩效改进的视角对该公共项目绩效损失治理提出了具体的政策建议,包括控制产出环节的绩效损失,提升扶贫项目的可持续发展能力;创新管理机制,发挥项目治理网络的绩效领导功能等。最后,本文提出了该领域未来可能的研究问题。
The core aim of performance evaluation is to improve performance. The improvement of performance not only could be measured by results, but also could be viewed from the perspective of the loss of performance. These two perspectives represent different logic of improving performance. Under the Public Value-based Government Performance Governance theory, the loss of performance was used to depict the decrease of performance due to the bad management and the deviation and conflicts of values. Based on the current literature, this article illustrates the evolution of the connotation of the loss of performance and defines the extension of the loss of performance from value and management perspective. The measuring framework of the loss of performance in public projects is constructed under the viewpoint of value chain and the framework is implemented in an anti-poverty project co-produced by J county level government in Gansu Province and a non-governmental organization. The loss of performance of the public project is measured and the distribution of the loss of performance is described as well. Lastly, policy suggestions of governing the loss of performance in public projects are proposed from the perspective of improving performance including controlling the performance loss in the output stage to improve the sustainability of the poverty alleviation project, and innovating the management mechanism to insure the performance leadership function of the governance network in the project. The future questions of this research area are also proposed in this article.
The core aim of performance evaluation is to improve performance. The improvement of performance not only could be measured by results, but also could be viewed from the perspective of the loss of performance. These two perspectives represent different logic of improving performance. Under the Public Value-based Government Performance Governance theory, the loss of performance was used to depict the decrease of performance due to the bad management and the deviation and conflicts of values. Based on the current literature, this article illustrates the evolution of the connotation of the loss of performance and defines the extension of the loss of performance from value and management perspective. The measuring framework of the loss of performance in public projects is constructed under the viewpoint of value chain and the framework is implemented in an anti-poverty project co-produced by J county level government in Gansu Province and a non-governmental organization. The loss of performance of the public project is measured and the distribution of the loss of performance is described as well. Lastly, policy suggestions of governing the loss of performance in public projects are proposed from the perspective of improving performance including controlling the performance loss in the output stage to improve the sustainability of the poverty alleviation project, and innovating the management mechanism to insure the performance leadership function of the governance network in the project. The future questions of this research area are also proposed in this article.
引文
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[8][18]王学军.政府绩效损失测度:公共价值范式下的理论框架.行政论坛,2017(4).
[9]Meyer M W,Gupta V.The Performance Paradox.Research in Organizational Behavior,1994(16).
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[13]尚虎平.政府绩效评估中“结果导向”的操作性偏误与矫治[J].政治学研究,2015(3).
[14]杜亚灵,尹贻林,严玲.公共项目管理绩效改善研究综述[J].软科学,2008(4).
[15]彭国甫,盛明科.政府绩效评估不同主体间的利益差异及其整合[J].学习与探索,2008(5).
[16]Olsen A.Compared to What?How Social and Historical Reference Point Affect Citizens’Performance Evaluations.Journal of Public Administration Research and Theory,2017(4).
[17]包国宪,张弘.基于PV-GPG理论框架的政府绩效损失研究--以鄂尔多斯“煤制油”项目为例[J].公共管理学报,2015,(3).
[21]王学军,张弘.公共价值的研究路径与前沿问题[J].公共管理学报,2013,10(2).
[22]Moore M.Recognizing Public Value.Cambridge,MA:Harvard University Press,2013.
[23]戴维.H.罗森布罗姆.论非任务性公共价值在当代绩效导向的公共管理中的地位[J].公共管理与政策评论,2012(1).
[24]吴建南,章磊,阎波,刘佳.公共项目绩效评价指标体系设计研究--基于多维要素框架的应用[J].项目管理技术,2009(4).
[25][33]卓萍.公共项目绩效评估指标特性及构建标准[J].行政论坛,2013(3).
[26][28]尹贻林,胡杰.基于利益相关者核心价值分析的公共项目成功标准研究[J].中国软科学,2006(5).
[27]道格拉斯·摩根.衡量政府绩效的信任范式和效率范式--对地方政府领导和决策的启示[J].公共管理学报,2013(2).
[29]迈克尔·波特.竞争优势[M].北京:华夏出版社,1997.
[30]Moore M.Creating Public Value:Strategic Management in Government.Cambridge,MA:Harvard University Press,1995.
[31]Bovaird T,Loeffler E.From Engagement to Co-production:the Contribution of Users and Communities to Outcomes and Public Value.Voluntas:International Journal of Voluntary and Nonprofit Organizations,2012,23(4).
[32][37]王学军.基于PV-GPG理论的政府绩效价值链构建及其管理研究[D].兰州大学,2014.
[34]Poister T.The Future of Strategic Planning in the Public Sector:Linking Strategic Management and Performance.Public Administration Review 2010(S1).
[35]MOORE M.Public Value Accounting:Establishing the Philosophical Basis.International Journal of Public Administration review,2014,74(4).
[36]Bekerom P,Schalk J,Torenvlied R.Transforming Input Into Output:How Downward Networking Mediates the Effect of External Networking on Organizational Performance.Public Performance&Management Review,2017(4).
[38]包国宪,张弘,毛雪雯.公共治理网络中的绩效领导结构特征与机制--基于“品清湖围网拆迁”的案例研究[J].兰州大学学报(社会科学版),2017,45(3).
[2][10]Thiel,Sandra Van,and F.L.Leeuw.The Performance Paradox in the Public Sector.Public Performance&Management Review,2001,25(3).
[3]郎玫,包国宪.博弈视角下政府绩效评价模型选择的理论优化[J].西北师大学报(社会科学版),2012,49(3).
[4]何文盛,王焱,蔡明君.政府绩效评估结果偏差探析:基于一种三维视角[J].中国行政管理,2013(01).
[5]Stoker G.Public Value Management:A New Narrative for Networked Governance?The American Review of Public Administration,2006,36(1).
[6][20]包国宪,王学军.以公共价值为基础的政府绩效治理--源起、架构与研究问题[J].公共管理学报,2012(4).
[7]Bao G,Wang X,Larsen G&Morgan D.Beyond New Public Governance:A Value-Based Global Framework for Performance Management,Governance and Leadership.Administration and Society,2013,45(4).
[8][18]王学军.政府绩效损失测度:公共价值范式下的理论框架.行政论坛,2017(4).
[9]Meyer M W,Gupta V.The Performance Paradox.Research in Organizational Behavior,1994(16).
[11][19]Taylor,Jeannette.Organizational Culture and the Paradox of Performance Management.Public Performance&Management Review,2014(1).
[12]范柏乃,余有贤,程宏伟.影响政府绩效评估误差的因素及其对策研究[J].软科学,2005(4).
[13]尚虎平.政府绩效评估中“结果导向”的操作性偏误与矫治[J].政治学研究,2015(3).
[14]杜亚灵,尹贻林,严玲.公共项目管理绩效改善研究综述[J].软科学,2008(4).
[15]彭国甫,盛明科.政府绩效评估不同主体间的利益差异及其整合[J].学习与探索,2008(5).
[16]Olsen A.Compared to What?How Social and Historical Reference Point Affect Citizens’Performance Evaluations.Journal of Public Administration Research and Theory,2017(4).
[17]包国宪,张弘.基于PV-GPG理论框架的政府绩效损失研究--以鄂尔多斯“煤制油”项目为例[J].公共管理学报,2015,(3).
[21]王学军,张弘.公共价值的研究路径与前沿问题[J].公共管理学报,2013,10(2).
[22]Moore M.Recognizing Public Value.Cambridge,MA:Harvard University Press,2013.
[23]戴维.H.罗森布罗姆.论非任务性公共价值在当代绩效导向的公共管理中的地位[J].公共管理与政策评论,2012(1).
[24]吴建南,章磊,阎波,刘佳.公共项目绩效评价指标体系设计研究--基于多维要素框架的应用[J].项目管理技术,2009(4).
[25][33]卓萍.公共项目绩效评估指标特性及构建标准[J].行政论坛,2013(3).
[26][28]尹贻林,胡杰.基于利益相关者核心价值分析的公共项目成功标准研究[J].中国软科学,2006(5).
[27]道格拉斯·摩根.衡量政府绩效的信任范式和效率范式--对地方政府领导和决策的启示[J].公共管理学报,2013(2).
[29]迈克尔·波特.竞争优势[M].北京:华夏出版社,1997.
[30]Moore M.Creating Public Value:Strategic Management in Government.Cambridge,MA:Harvard University Press,1995.
[31]Bovaird T,Loeffler E.From Engagement to Co-production:the Contribution of Users and Communities to Outcomes and Public Value.Voluntas:International Journal of Voluntary and Nonprofit Organizations,2012,23(4).
[32][37]王学军.基于PV-GPG理论的政府绩效价值链构建及其管理研究[D].兰州大学,2014.
[34]Poister T.The Future of Strategic Planning in the Public Sector:Linking Strategic Management and Performance.Public Administration Review 2010(S1).
[35]MOORE M.Public Value Accounting:Establishing the Philosophical Basis.International Journal of Public Administration review,2014,74(4).
[36]Bekerom P,Schalk J,Torenvlied R.Transforming Input Into Output:How Downward Networking Mediates the Effect of External Networking on Organizational Performance.Public Performance&Management Review,2017(4).
[38]包国宪,张弘,毛雪雯.公共治理网络中的绩效领导结构特征与机制--基于“品清湖围网拆迁”的案例研究[J].兰州大学学报(社会科学版),2017,45(3).