我国公务员绩效考评体系改革研究
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摘要
绩效考评是公务员管理中一个极其重要的环节,它为公务员的任用、奖惩、职务升降、薪酬制度设计等方面提供了客观依据,是公务员改进工作、谋求发展进而提高政府管理效率的重要途径。如今,如何构建科学的公务员绩效考评体系已经成为一个世界性的难题。建国以来,特别是1993年《国家公务员暂行条例》颁布后,我国公务员绩效考评的基本框架已经初步建立,其在公务员管理中的作用也越来越不可替代。然而,制度的完善不是一蹴而就的,我国公务员绩效考评仍然存在不少体制性缺陷。本文以全球绩效管理运动、《公务员法》的出台为背景,以完善我国公务员绩效考评制度为出发点,从绩效考评基本理论入手,深入研究了公务员绩效考评的内涵、特征、功用及其理论依据,为探索我国公务员绩效考评体系的改革思路提供了坚实的理论支撑;通过回顾我国公务员绩效考评制度的历史沿革,总结了现有考评制度所存在的一系列弊端,并从政治制度、文化理念、考评技术等层面对产生问题的原因进行了深入探究;最后,从思想、操作、体制及法律等几个层面提出改革我国公务员绩效考评体系的建议,力图使公务员绩效考评实践更加客观、公正。
Performance appraisal is one of the most important courses of the civil servant's management, which provides impersonal foundation for the appointment rewards and punishment promotion and falling , training of civil servant, beside of that, it's also an important approach to enhance working and efficiency of the government. Thereby, making scientific civil performance appraisal system becomes a worldwide problem. Since the foundation of People's Republic of China, especially after promulgation of The National Civil Servant Temporary Byelaw in 1993, the basic patter of our civil servant's performance appraisal has been established, and its function is becoming more and more important. However, no system's perfect can accomplish in an action, our performance appraisal of civil servant has a lot problem yet. This article took The Global Performance Management Movement as background, based on the perfect of our civil servant's performance appraisal, researched the content, character, function and academic basis of civil servant's performance appraisal, and afforded forceful theory sustain to the reform of our civil servant's performance appraisal system; by reviewing the history of our civil servant's performance appraisal system, we summarized a series of malpractices which consist in existing appraisal system, and probed into the reason of questions from politics, culture, technology and so on; Finally, in order to make civil servant's performance appraisal more impersonal and fair, we proposed some solution to how to reform our civil servant's performance appraisal system, from thinking , operation, system and law.
Performance appraisal is one of the most important courses of the civil servant's management, which provides impersonal foundation for the appointment rewards and punishment promotion and falling , training of civil servant, beside of that, it's also an important approach to enhance working and efficiency of the government. Thereby, making scientific civil performance appraisal system becomes a worldwide problem. Since the foundation of People's Republic of China, especially after promulgation of The National Civil Servant Temporary Byelaw in 1993, the basic patter of our civil servant's performance appraisal has been established, and its function is becoming more and more important. However, no system's perfect can accomplish in an action, our performance appraisal of civil servant has a lot problem yet. This article took The Global Performance Management Movement as background, based on the perfect of our civil servant's performance appraisal, researched the content, character, function and academic basis of civil servant's performance appraisal, and afforded forceful theory sustain to the reform of our civil servant's performance appraisal system; by reviewing the history of our civil servant's performance appraisal system, we summarized a series of malpractices which consist in existing appraisal system, and probed into the reason of questions from politics, culture, technology and so on; Finally, in order to make civil servant's performance appraisal more impersonal and fair, we proposed some solution to how to reform our civil servant's performance appraisal system, from thinking , operation, system and law.
引文
[1] 黄达强.各国公务员制度比较研究.北京:中国人民大学出版社,1990.
[2] 徐颂陶.国家公务员制度全书.吉林:吉林问世出版社,1994.
[3] 潘光源,刘晓.国家公务员录用考试全书.北京:中国人事出版社,1998.
[4] Michael Armstrong, Angela Baron. Performance Management. London: The Cromwell Press, 1998.
[5] 戴维·H·罗森布鲁姆,罗伯特·S·克拉夫丘克.公共行政学:管理、政治、法律的途径.北京:中国人民大学出版社,2002.
[6] 陈长缨.我国经贸规则与WTO有关规则的比较和对策.宏观经济研究.2000,10:39-40
[7] 李瑜青.人本思潮与中国文化.北京:东方出版社,1998.
[8] R·Myers, R·lacey. Consumer Satisfaction, Performance and Accountability in the Public Sector. London: International Review of Administrative Sciences, 1996.
[9] 曹志.中华人民共和国人事制度概要.北京:北京大学出版社,1985.
[10] 杨占瑞.机关目标管理工作指南.北京:中国人事出版社,1993.
[11] 人事部.“国家公务员暂行条例”释义.北京:人民出版社,1993.
[12] 金江军,潘懋.电子政务导论.北京:北京大学出版社,2003.
[13] 劳拉·朗贝尔.公共部门杠杆管理.北京:中国人民大学出版社,2002.
[14] 陈振明.公共管理学——种不同于传统行政学的研究途径.北京:中国人民大学出版社.2003.
[15] 马克·霍哲.公共部门业绩评估与改善.中国行政管理.2000,3:36—39
[16] 吴建南,庄秋爽.“自上而下”评价政府绩效探索:“公民评议政府”的得失分析.理论与改革.2004,5:69-71
[17] 谭融.公共部门人力资源管理.天滓:天津大学出版社,2003.
[18] 柯武刚,史漫飞.制度经济学——社会秩序与公共政策北京:商务印书馆,2000.
[19] 姚洋.制度与效率——与诺斯对话.四川:四川人民出版社,2002.
[20] 肖鸣政.国家公务员考评教程.北京:中央民族学院出版社,1995.
[21] 吴江,胡冶岩.公共部门人力资源管理.北京:中共中央党校出版社,2003.
[22] 李文良.公共部门与人力资源管理.吉林:吉林人民出版社,2003.
[23] 姜海如.中外公务员制度比较.北京:商务印书馆,2003.
[24] 李和中.比较公务员制度.北京:中共中央党校出版社,2003.
[25] 廖晓珊.县(区)级国家公务员考核评价系统研究.昆明理工大学学报.1996,5:126-134
[26] 林代昭.中国近现代人事制度.北京:劳动人事出版社,1989.
[27] 李德志.当代中国公共部门人力资源管理与开发.北京:科学出版社,2004.
[28] 张建国,高兰,岳东峰.干部制度改革与创新.北京:中共中央党校出版社,2001.
[29] 范逢春.比较行政学.四川:四川人民出版社,2003.
[30] 陈福今.全面落实科学发展观,大力推进公共服务创新.中国行政管理.2004,8:20-24
[31] 刘旭涛。论绩效型政府及其构建思路.中国行政管理.2004,3:76-80
[32] 罗章,何利.国家公务员考评评析.重庆大学学报(社科版).2002,1:120-123
[33] 叶海平,季潮波.都市公共政策概论.上海:华东理工大学出版社,2002.
[34] 孙彩虹.公务员考评的内容和标准——历史现状和未来.地方政府管理.2001,4:32-33
[35] 孙柏瑛,祁光华.公共部门人力资源开发与管理.中国人民大学出版社,2004.
[36] 张定安.平衡计分卡与公共部门绩效管理.中国行政管理.2004,6:69-75
[37] 江美塘.试析信息化社会政府人事管理面临的挑战与变革.中国政治学在线.2004
[38] 卓越.公共部门绩效评估的主体构建.中国行政管理.2004,4:17-21
[39] 陆国泰.中国公共人事管理.中共中央党校出版社.2002.
[40] 深化干部人事制度改革问答.北京:人民日报出版社.2000.
[41] 选拔干部民意调查方法规范化及相关理论研究.四川:四川大学出版社,1990。
[42] 胡光伟.人才管理学基本理论.北京:中国科学技术出版社,1987.
[43] 廖泉文.人力资源考评系统.山东:山东人民出版社,2000.
[44] 李道山.完善公务员的考核与管理.学习月刊.2004,6:60-61
[45] 詹姆斯·W·费斯勒,唐纳德·F·凯特尔.行政过程的政治——公共行政学新论(第二版).北京:中国人民大学出版社,2002.
[46] 张强.公务员考核的多维透视.地方政府管理.1998,9:29-30
[47] 舒放,王克良.国家公务员制度教程.北京:中国人民大学出版社,2001。
[48] 仝志敏。国家公务员概论。北京:中国人民大学出版社,1989
[49] 朱晓卫.公共部门人力资源开发与管理研究.黑龙江.黑龙江人民出版社,2003.
[50] 建人.建湖县构建公务员考核体系.人才开发.1999,4:48-49
[51] 柯武刚,史漫飞.制度经济学——社会秩序与公共政策.北京:商务印书馆,2000.
[52] 付亚和,许玉林.绩效考核与绩效管理。北京:电子工业出版社,2003.
[53] Ian Carvton, Martyn Sloman. Performance appraisal in Practice. Human Resource Management Journal, 1992(3): 80-90
[54] Fine·T·Snyder·L. What is the difference between performance measurement and benchmarking? Public Management, 1999(1): 24-25
[55] Michel Cesar. Six Axioms for Performance Measurement in the Public Sector. http://www.pbviews.com
[56] Theurer·J. Seven pitfalls to avoid when establishing performance measures. Public Management, 1998(7):21-24
[57] Carolyn J. Heinrich. 2OO2. Outcomes-based Performance Management in The Public Sector: Implications for Government Accountability and Effectiveness. Public Administration Review. Vol 62. Iss 6. pp: 712-715
[58] Janet M. Kelly, David Swindell. 2OO2. A Multiple-indicator Approach to Municipal Service Evaluation: Correlating Performance Measurement and Citizen Satisfaction acrossJurisdictions. Public Administration Review. Vol. 62, Iss. 5. Pp: 610-622
[59] William·J·Rothwell. Human performance improvement: building practitioner competence , Gulf, c2000.
[60] Anne-Wil·Harzing, J·van Ruysseveldt.International human resource management, Sage Publications,2004.
[61] Fandray, Dayton. The new thinking in performance appraisal. Workforce. 2001,80(5):36
[62] Greenberg, J. (1986). Determinants of perceived fairness of performance evaluations. Journal of Applied Psychology, 1971:340-342
[2] 徐颂陶.国家公务员制度全书.吉林:吉林问世出版社,1994.
[3] 潘光源,刘晓.国家公务员录用考试全书.北京:中国人事出版社,1998.
[4] Michael Armstrong, Angela Baron. Performance Management. London: The Cromwell Press, 1998.
[5] 戴维·H·罗森布鲁姆,罗伯特·S·克拉夫丘克.公共行政学:管理、政治、法律的途径.北京:中国人民大学出版社,2002.
[6] 陈长缨.我国经贸规则与WTO有关规则的比较和对策.宏观经济研究.2000,10:39-40
[7] 李瑜青.人本思潮与中国文化.北京:东方出版社,1998.
[8] R·Myers, R·lacey. Consumer Satisfaction, Performance and Accountability in the Public Sector. London: International Review of Administrative Sciences, 1996.
[9] 曹志.中华人民共和国人事制度概要.北京:北京大学出版社,1985.
[10] 杨占瑞.机关目标管理工作指南.北京:中国人事出版社,1993.
[11] 人事部.“国家公务员暂行条例”释义.北京:人民出版社,1993.
[12] 金江军,潘懋.电子政务导论.北京:北京大学出版社,2003.
[13] 劳拉·朗贝尔.公共部门杠杆管理.北京:中国人民大学出版社,2002.
[14] 陈振明.公共管理学——种不同于传统行政学的研究途径.北京:中国人民大学出版社.2003.
[15] 马克·霍哲.公共部门业绩评估与改善.中国行政管理.2000,3:36—39
[16] 吴建南,庄秋爽.“自上而下”评价政府绩效探索:“公民评议政府”的得失分析.理论与改革.2004,5:69-71
[17] 谭融.公共部门人力资源管理.天滓:天津大学出版社,2003.
[18] 柯武刚,史漫飞.制度经济学——社会秩序与公共政策北京:商务印书馆,2000.
[19] 姚洋.制度与效率——与诺斯对话.四川:四川人民出版社,2002.
[20] 肖鸣政.国家公务员考评教程.北京:中央民族学院出版社,1995.
[21] 吴江,胡冶岩.公共部门人力资源管理.北京:中共中央党校出版社,2003.
[22] 李文良.公共部门与人力资源管理.吉林:吉林人民出版社,2003.
[23] 姜海如.中外公务员制度比较.北京:商务印书馆,2003.
[24] 李和中.比较公务员制度.北京:中共中央党校出版社,2003.
[25] 廖晓珊.县(区)级国家公务员考核评价系统研究.昆明理工大学学报.1996,5:126-134
[26] 林代昭.中国近现代人事制度.北京:劳动人事出版社,1989.
[27] 李德志.当代中国公共部门人力资源管理与开发.北京:科学出版社,2004.
[28] 张建国,高兰,岳东峰.干部制度改革与创新.北京:中共中央党校出版社,2001.
[29] 范逢春.比较行政学.四川:四川人民出版社,2003.
[30] 陈福今.全面落实科学发展观,大力推进公共服务创新.中国行政管理.2004,8:20-24
[31] 刘旭涛。论绩效型政府及其构建思路.中国行政管理.2004,3:76-80
[32] 罗章,何利.国家公务员考评评析.重庆大学学报(社科版).2002,1:120-123
[33] 叶海平,季潮波.都市公共政策概论.上海:华东理工大学出版社,2002.
[34] 孙彩虹.公务员考评的内容和标准——历史现状和未来.地方政府管理.2001,4:32-33
[35] 孙柏瑛,祁光华.公共部门人力资源开发与管理.中国人民大学出版社,2004.
[36] 张定安.平衡计分卡与公共部门绩效管理.中国行政管理.2004,6:69-75
[37] 江美塘.试析信息化社会政府人事管理面临的挑战与变革.中国政治学在线.2004
[38] 卓越.公共部门绩效评估的主体构建.中国行政管理.2004,4:17-21
[39] 陆国泰.中国公共人事管理.中共中央党校出版社.2002.
[40] 深化干部人事制度改革问答.北京:人民日报出版社.2000.
[41] 选拔干部民意调查方法规范化及相关理论研究.四川:四川大学出版社,1990。
[42] 胡光伟.人才管理学基本理论.北京:中国科学技术出版社,1987.
[43] 廖泉文.人力资源考评系统.山东:山东人民出版社,2000.
[44] 李道山.完善公务员的考核与管理.学习月刊.2004,6:60-61
[45] 詹姆斯·W·费斯勒,唐纳德·F·凯特尔.行政过程的政治——公共行政学新论(第二版).北京:中国人民大学出版社,2002.
[46] 张强.公务员考核的多维透视.地方政府管理.1998,9:29-30
[47] 舒放,王克良.国家公务员制度教程.北京:中国人民大学出版社,2001。
[48] 仝志敏。国家公务员概论。北京:中国人民大学出版社,1989
[49] 朱晓卫.公共部门人力资源开发与管理研究.黑龙江.黑龙江人民出版社,2003.
[50] 建人.建湖县构建公务员考核体系.人才开发.1999,4:48-49
[51] 柯武刚,史漫飞.制度经济学——社会秩序与公共政策.北京:商务印书馆,2000.
[52] 付亚和,许玉林.绩效考核与绩效管理。北京:电子工业出版社,2003.
[53] Ian Carvton, Martyn Sloman. Performance appraisal in Practice. Human Resource Management Journal, 1992(3): 80-90
[54] Fine·T·Snyder·L. What is the difference between performance measurement and benchmarking? Public Management, 1999(1): 24-25
[55] Michel Cesar. Six Axioms for Performance Measurement in the Public Sector. http://www.pbviews.com
[56] Theurer·J. Seven pitfalls to avoid when establishing performance measures. Public Management, 1998(7):21-24
[57] Carolyn J. Heinrich. 2OO2. Outcomes-based Performance Management in The Public Sector: Implications for Government Accountability and Effectiveness. Public Administration Review. Vol 62. Iss 6. pp: 712-715
[58] Janet M. Kelly, David Swindell. 2OO2. A Multiple-indicator Approach to Municipal Service Evaluation: Correlating Performance Measurement and Citizen Satisfaction acrossJurisdictions. Public Administration Review. Vol. 62, Iss. 5. Pp: 610-622
[59] William·J·Rothwell. Human performance improvement: building practitioner competence , Gulf, c2000.
[60] Anne-Wil·Harzing, J·van Ruysseveldt.International human resource management, Sage Publications,2004.
[61] Fandray, Dayton. The new thinking in performance appraisal. Workforce. 2001,80(5):36
[62] Greenberg, J. (1986). Determinants of perceived fairness of performance evaluations. Journal of Applied Psychology, 1971:340-342