基于PV-GPG理论的政府绩效价值链构建及其管理研究
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摘要
新公共管理运动推动了政府绩效管理的发展,从私人部门引入公共部门后,绩效管理逐渐从一个管理工具发展成为各级政府治理创新和推动改革发展的重要组成部分,在促进行政效率和公民满意度提升方面做出了突出贡献。建立在新公共管理基础之上的政府绩效管理关注的重点是管理技术和管理工具,具有明显的管理主义特征,它可以不受价值和文化差异的约束,应用到政府管理过程中。然而,也正是这一工具性特征给政府绩效管理实践带来了一系列挑战和问题,对于效率的片面追求不但不会带来绩效的增长,反而会造成政府绩效管理中的唯GDP主义、发展的不可持续等问题,从而对社会造成极大危害。
近年来,中央政府在推动经济社会发展过程中逐步认识到了唯GDP主义的危害,转而强调将民生改善、社会进步和生态效益置于发展的突出位置。从政府绩效管理的角度讲,就是要在政府绩效管理过程中体现公共价值,使得政府产出不但体现经济、效率和效益的价值追求,而且符合中央精神、地方实际和公民需要,并且从管理上提出方法。本文的研究以此为切入,在以公共价值为基础的政府绩效治理理论(PV-GPG理论)基础上研究政府绩效价值链的构建、分析与管理问题,主要聚焦PV-GPG模型中横向的组织管理部分,研究了一种新的政府绩效管理方法,为PV-GPG理论的落地提供了一种路径。
本研究主要包括三个核心部分：一是理论分析和解释,进一步阐述PV-GPG理论,并通过多种方法对PV-GPG理论所蕴含的绩效内涵、政府绩效与公共价值的关系、政府绩效管理中的公共价值冲突等关键内容进行解释；二是价值链构建,在PV-GPG理论基础上,区别借鉴私人部门价值链分析方法,从政府绩效的“管理环节”和“分析要素”两个维度构建政府绩效价值链模型,作为分析和管理政府绩效的理论框架；三是价值链分析和管理,从理论和实践两个层面分析了社会价值建构、组织管理和协同领导系统等三个要素的价值内涵,并对它们在政府绩效管理各个环节的价值分布和具体表现形式进行了研究,提出了政府绩效价值链管理的“关键诊断性问题”方法和“差距分析”方法。
本研究遵循“解构-分析-整合”的研究方法论,采用了规范研究、理论分析、文献研究、专家咨询和访谈研究等多种研究方法,整体上属于质性研究。
本研究的主要结论包括：第一：在PV-GPG理论的进一步研究方面,PV-GPG理论所蕴含的一些关键内容在实证研究中得到了解释,主要包括——仅仅关注“复杂性应对”无益于解决棘手的公共管理问题,价值冲突是最大挑战；公民对地方政府的信任和政府合法性的维持不能只依赖于管理效率的提升,还需要妥善处理与公民的关系、获得利益相关者的支持,并应对可持续发展的挑战；政府绩效管理中价值冲突的应对是地方政府及其管理者面临的主要挑战。
第二：在政府绩效与公共价值的关系方面,公共价值的实现需要社会价值建构、组织管理和协同领导系统的共同作用,在PV-GPG理论体系下,公共价值的创造和实现过程就是政府绩效的生产过程。
第三：在政府绩效价值链的构建方面,政府绩效价值链模型将政府绩效的生产过程通过“管理环节”和“分析要素”两个维度进行了划分,打开了政府绩效生产的黑箱,明晰了政府绩效的生产路径。在政府绩效管理的每一个环节,都要分析绩效生产过程是不是体现了公共价值,是不是实现了公共价值基础上的产出最大化,绩效生产过程中的价值冲突是否得到了有效协同。
第四：在政府绩效价值链的分析方面,社会价值建构、组织管理和协同领导系统等要素的价值内涵分布在政府绩效生产的计划、实施、评价和反馈等各个阶段,通过理论研究和专家咨询相互结合的方式,各个要素的价值内涵在政府绩效管理各环节的价值分布及其具体表现形式得到了明晰,为管理政府绩效生产的各个环节提供了可遵循的依据,也为政府绩效价值链评估奠定了基础。
第五：在政府绩效价值链的管理方面,“关键诊断性问题”方法契合了政府绩效价值链模型的基本特征,是管理政府绩效价值链的重要机制。基于政府绩效价值链的价值分布及其具体表现形式而提出的关键诊断性问题为实现社会价值建构、组织管理和协同领导系统的价值内涵提供了路径,回答问题的过程本身也有助于促进公民参与、合作生产和治理网络维护,从而改进政府绩效。
本文后续的研究主要从PV-GPG理论及模型的实证与完善、政府绩效价值链的结构分析和价值实现的关键路径、“关键诊断性问题”的筛选和答案判定依据、政府绩效价值链在实际中的应用等方面展开。
After introduced from the private sector to public sector, Government Performance Management, promoted by New Public Management movement, gradually developed from a management tool of government to an important part of promoting the reform and development of innovation of all levels of governance, which contributed outstandingly to the promotion of administrative efficiency and citizen satisfaction. Built on the basis of New Public Management, the focus of Government Performance Management is management techniques and management tools with the obvious characteristics of management doctrine, it was not bound by values and cultural differences and could be applied to the government to manage the process, however, this instrumental feature has also brought a series of challenges and problems to the Government performance Management practice. The., one-sided pursuit of efficiency growth will not bring the performance, but will result in GDP-ism in Government Performance Management and unsustainable development and other issues, which caused great harm to society. In recent years, the central government gradually found the harm of GDP-ism in the process of pushing forward the economic and social development, and the improvement of citizen well beings, the progress of social management and ecological effectiveness were emphasized at the most prominent position. From the viewpoint of government performance management, it means that the government performance management process should reflect public value, in other words, the output of government should not only express the value of economy, efficiency and effectiveness, but also meets the strategy of central government, the present practices of local areas and the requirement of citizens. Taking this as the starting point, the research conducts study on the construction, analysis and management approaches of government performance value chain based on the public value-based government performance governance theory (PV-GPG theory) with a focus on the research of horizontal organization management part of the PV-GPG model to develop a new government performance management method, thus provides a method for the landing path of the PV-GPG theory.
This research mainly includes three core parts:First is theoretical analysis and illustration, the PV-GPG theory was further explained and some core components like the connotation of performance, the relationship between government performance and public value(s), the public value conflicts in government performance management implicated in PV-GPG theory were explained by multiple methods; Second, the construction of value chain, the government performance value chain model was constructed in the dimensions of "managing phases" and "analyzing elements" of government performance based on PV-GPG theory and the implications of the value chain analysis methods of the private sectors. The government performance value chain serves as the theoretical framework of analyzing and managing government performance; Third, the analysis and management of value chain, the value connotation of social value construction, organization management and synergistic leadership system were analyzed from theory and practice, and the value distribution and specific manifestations of the value connotations on different management phases were studied as well. The critical diagnostic questions method and the gap analysis method were proposed as the approaches of government performance value chain management.
In this study, the "deconstruction-analysis-integration" approach was applied with a variety of research methods including normative research methods, literature research theoretical analysis, expert consulting and interview. This research is a qualitative research as a whole.
The main conclusions of this study include:
First:on the aspect of further study of PV-GPG theory, some key components of PV-GPG theory was explained in the experience study, the implications mainly include-just focus on dealing with the complexity will do no good to solve wicked problems of public administration and the biggest challenge faced is value conflicts; citizens' trust and legitimacy of the government not only rely on the improved efficiency in management, but also rely on properly handling the relationship between government and citizens, getting stakeholders support and dealing with the challenges of sustainable development; managing value conflicts in government performance management is a major challenge faced by local governments and their managers.
Second:on the aspect of the relationship between government performance and public value, the realization of public value requires the joint action of social value construction, organization management and synergistic leadership system. Under the PV-GPG theoretical system, the process of public value creation and implementation is the production process of government performance.
Third:on the aspect of government performance value chain construction, the government performance value chain model divided the production process of government performance from the aspects of "managing phases" and "analyzing elements", the black box of government performance production was opened, and government performance production path was cleared. In every stage of government performance management, if the production process was based on public value or not, if the maximization of output on the basis of public value was realized or not, and if the value conflicts in the process of performance production has been effectively collaborated or not should be analyzed accordingly.
Forth:on the aspect of government performance value chain analysis, the value connotation of social value construction, organizational management and synergistic leadership elements were distributed in all stages of government performance management like, planning, implementation, evaluation and feedback. Based on theoretical studies and expert consulting, the value distribution and its specific manifestations of the value connotations on different management phases were proposed, thus providing a basis of managing every stage of government performance production and providing a basis of value chain assessment.
Fifth:on the aspect of government performance value chain management,"The key diagnostic problem" approach fits the basic characteristics of government performance value chain model, and serves as an important mechanism for the management of government performance value chain. The key diagnostic problems based on the research of the value distribution and its specific manifestations provided a path of realizing the value connotations of social value construction, organization management and synergistic leadership system. The process of answering the question itself would facilitate citizen participation, co-production and governance network maintenance, thus to further improve government performance.
The future research areas of this study will be conducted on empirical verification and perfection of PV-GPG theory, the structural analysis of government performance value chain and the key paths and value realization, the selection of critical diagnostic questions and the evidence of its judgment, and the practical application of government performance value chain.
近年来,中央政府在推动经济社会发展过程中逐步认识到了唯GDP主义的危害,转而强调将民生改善、社会进步和生态效益置于发展的突出位置。从政府绩效管理的角度讲,就是要在政府绩效管理过程中体现公共价值,使得政府产出不但体现经济、效率和效益的价值追求,而且符合中央精神、地方实际和公民需要,并且从管理上提出方法。本文的研究以此为切入,在以公共价值为基础的政府绩效治理理论(PV-GPG理论)基础上研究政府绩效价值链的构建、分析与管理问题,主要聚焦PV-GPG模型中横向的组织管理部分,研究了一种新的政府绩效管理方法,为PV-GPG理论的落地提供了一种路径。
本研究主要包括三个核心部分：一是理论分析和解释,进一步阐述PV-GPG理论,并通过多种方法对PV-GPG理论所蕴含的绩效内涵、政府绩效与公共价值的关系、政府绩效管理中的公共价值冲突等关键内容进行解释；二是价值链构建,在PV-GPG理论基础上,区别借鉴私人部门价值链分析方法,从政府绩效的“管理环节”和“分析要素”两个维度构建政府绩效价值链模型,作为分析和管理政府绩效的理论框架；三是价值链分析和管理,从理论和实践两个层面分析了社会价值建构、组织管理和协同领导系统等三个要素的价值内涵,并对它们在政府绩效管理各个环节的价值分布和具体表现形式进行了研究,提出了政府绩效价值链管理的“关键诊断性问题”方法和“差距分析”方法。
本研究遵循“解构-分析-整合”的研究方法论,采用了规范研究、理论分析、文献研究、专家咨询和访谈研究等多种研究方法,整体上属于质性研究。
本研究的主要结论包括：第一：在PV-GPG理论的进一步研究方面,PV-GPG理论所蕴含的一些关键内容在实证研究中得到了解释,主要包括——仅仅关注“复杂性应对”无益于解决棘手的公共管理问题,价值冲突是最大挑战；公民对地方政府的信任和政府合法性的维持不能只依赖于管理效率的提升,还需要妥善处理与公民的关系、获得利益相关者的支持,并应对可持续发展的挑战；政府绩效管理中价值冲突的应对是地方政府及其管理者面临的主要挑战。
第二：在政府绩效与公共价值的关系方面,公共价值的实现需要社会价值建构、组织管理和协同领导系统的共同作用,在PV-GPG理论体系下,公共价值的创造和实现过程就是政府绩效的生产过程。
第三：在政府绩效价值链的构建方面,政府绩效价值链模型将政府绩效的生产过程通过“管理环节”和“分析要素”两个维度进行了划分,打开了政府绩效生产的黑箱,明晰了政府绩效的生产路径。在政府绩效管理的每一个环节,都要分析绩效生产过程是不是体现了公共价值,是不是实现了公共价值基础上的产出最大化,绩效生产过程中的价值冲突是否得到了有效协同。
第四：在政府绩效价值链的分析方面,社会价值建构、组织管理和协同领导系统等要素的价值内涵分布在政府绩效生产的计划、实施、评价和反馈等各个阶段,通过理论研究和专家咨询相互结合的方式,各个要素的价值内涵在政府绩效管理各环节的价值分布及其具体表现形式得到了明晰,为管理政府绩效生产的各个环节提供了可遵循的依据,也为政府绩效价值链评估奠定了基础。
第五：在政府绩效价值链的管理方面,“关键诊断性问题”方法契合了政府绩效价值链模型的基本特征,是管理政府绩效价值链的重要机制。基于政府绩效价值链的价值分布及其具体表现形式而提出的关键诊断性问题为实现社会价值建构、组织管理和协同领导系统的价值内涵提供了路径,回答问题的过程本身也有助于促进公民参与、合作生产和治理网络维护,从而改进政府绩效。
本文后续的研究主要从PV-GPG理论及模型的实证与完善、政府绩效价值链的结构分析和价值实现的关键路径、“关键诊断性问题”的筛选和答案判定依据、政府绩效价值链在实际中的应用等方面展开。
After introduced from the private sector to public sector, Government Performance Management, promoted by New Public Management movement, gradually developed from a management tool of government to an important part of promoting the reform and development of innovation of all levels of governance, which contributed outstandingly to the promotion of administrative efficiency and citizen satisfaction. Built on the basis of New Public Management, the focus of Government Performance Management is management techniques and management tools with the obvious characteristics of management doctrine, it was not bound by values and cultural differences and could be applied to the government to manage the process, however, this instrumental feature has also brought a series of challenges and problems to the Government performance Management practice. The., one-sided pursuit of efficiency growth will not bring the performance, but will result in GDP-ism in Government Performance Management and unsustainable development and other issues, which caused great harm to society. In recent years, the central government gradually found the harm of GDP-ism in the process of pushing forward the economic and social development, and the improvement of citizen well beings, the progress of social management and ecological effectiveness were emphasized at the most prominent position. From the viewpoint of government performance management, it means that the government performance management process should reflect public value, in other words, the output of government should not only express the value of economy, efficiency and effectiveness, but also meets the strategy of central government, the present practices of local areas and the requirement of citizens. Taking this as the starting point, the research conducts study on the construction, analysis and management approaches of government performance value chain based on the public value-based government performance governance theory (PV-GPG theory) with a focus on the research of horizontal organization management part of the PV-GPG model to develop a new government performance management method, thus provides a method for the landing path of the PV-GPG theory.
This research mainly includes three core parts:First is theoretical analysis and illustration, the PV-GPG theory was further explained and some core components like the connotation of performance, the relationship between government performance and public value(s), the public value conflicts in government performance management implicated in PV-GPG theory were explained by multiple methods; Second, the construction of value chain, the government performance value chain model was constructed in the dimensions of "managing phases" and "analyzing elements" of government performance based on PV-GPG theory and the implications of the value chain analysis methods of the private sectors. The government performance value chain serves as the theoretical framework of analyzing and managing government performance; Third, the analysis and management of value chain, the value connotation of social value construction, organization management and synergistic leadership system were analyzed from theory and practice, and the value distribution and specific manifestations of the value connotations on different management phases were studied as well. The critical diagnostic questions method and the gap analysis method were proposed as the approaches of government performance value chain management.
In this study, the "deconstruction-analysis-integration" approach was applied with a variety of research methods including normative research methods, literature research theoretical analysis, expert consulting and interview. This research is a qualitative research as a whole.
The main conclusions of this study include:
First:on the aspect of further study of PV-GPG theory, some key components of PV-GPG theory was explained in the experience study, the implications mainly include-just focus on dealing with the complexity will do no good to solve wicked problems of public administration and the biggest challenge faced is value conflicts; citizens' trust and legitimacy of the government not only rely on the improved efficiency in management, but also rely on properly handling the relationship between government and citizens, getting stakeholders support and dealing with the challenges of sustainable development; managing value conflicts in government performance management is a major challenge faced by local governments and their managers.
Second:on the aspect of the relationship between government performance and public value, the realization of public value requires the joint action of social value construction, organization management and synergistic leadership system. Under the PV-GPG theoretical system, the process of public value creation and implementation is the production process of government performance.
Third:on the aspect of government performance value chain construction, the government performance value chain model divided the production process of government performance from the aspects of "managing phases" and "analyzing elements", the black box of government performance production was opened, and government performance production path was cleared. In every stage of government performance management, if the production process was based on public value or not, if the maximization of output on the basis of public value was realized or not, and if the value conflicts in the process of performance production has been effectively collaborated or not should be analyzed accordingly.
Forth:on the aspect of government performance value chain analysis, the value connotation of social value construction, organizational management and synergistic leadership elements were distributed in all stages of government performance management like, planning, implementation, evaluation and feedback. Based on theoretical studies and expert consulting, the value distribution and its specific manifestations of the value connotations on different management phases were proposed, thus providing a basis of managing every stage of government performance production and providing a basis of value chain assessment.
Fifth:on the aspect of government performance value chain management,"The key diagnostic problem" approach fits the basic characteristics of government performance value chain model, and serves as an important mechanism for the management of government performance value chain. The key diagnostic problems based on the research of the value distribution and its specific manifestations provided a path of realizing the value connotations of social value construction, organization management and synergistic leadership system. The process of answering the question itself would facilitate citizen participation, co-production and governance network maintenance, thus to further improve government performance.
The future research areas of this study will be conducted on empirical verification and perfection of PV-GPG theory, the structural analysis of government performance value chain and the key paths and value realization, the selection of critical diagnostic questions and the evidence of its judgment, and the practical application of government performance value chain.
引文
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