我国公共卫生服务体系绩效评价指标体系研究
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摘要
目的：明确具有中国特色的公共卫生服务体系内涵与构成,探索评价公共卫生服务体系建设和投入效果、效益的思路,尝试建立符合我国现实情况、具有一定导向性的公共卫生服务体系绩效评价指标体系。
内容及方法：采用文献综述法,明确绩效、绩效评价等基本概念,比较分析主要的绩效评价方法,初步筛选可资选取的绩效考核指标,借鉴国内外已经开展的绩效评价研究中的经验和成果；结合我国公共卫生服务体系的实际情况,运用德尔菲法和层次分析等方法,构建公共卫生服务体系、绩效评价指标体系；选择26个省份作为样本,对绩效评价指标体系进行实证研究,评价指标的信度与效度；对实证研究结果进行讨论,对研究建立的公共卫生服务体系绩效评价指标体系在实践中的应用进行前瞻。
结果：研究界定了具有中国特色的公共卫生服务体系的范畴。借鉴WHO卫生系统绩效评价的概念框架和Donabedian的结构、过程、结果三维评价框架,确定了投入—产出—结果三个维度构建的三级指标体系,具体包括：3个一级指标,12个二级指标和25个三级指标,利用层次分析法确定了指标的权重系数,并应用26个省份2008年度的数据对指标体系进行了实证研究,根据研究所设计的指标体系得出了样本省份的公共卫生服务体系绩效值,并进行了排序。最后,对研究建立起的指标体系的应用和实施公共卫生服务绩效评价的关键环节进行了讨论。
结论：研究所建立的公共卫生服务体系绩效评价指标体系的方法合理,指标构成全面、系统、重点突出,经过实证研究,认为可信有效。在当前的绩效评价指标体系框架下,公共卫生服务的绩效的主要影响因素是投入。本研究为研究探索评价公共卫生服务体系建设和投入效果、效益的思路,建立起符合我国现实情况、具有一定导向性的公共卫生服务体系绩效评价指标体系,进行了有益的尝试。
创新性：(1)根据目前公共卫生服务体系发展现状,研究提出了我国公共卫生服务体系构成的主体是各级专业公共卫生机构,基础是承担公共卫生服务功能的基层医疗卫生机构,提供公共卫生服务的县级及以上的医疗机构是不可缺少的组成部分,并从实际应用出发,界定了具有中国特色的公共卫生服务体系的范畴,主要包括：疾病预防控制、妇幼保健、农村和社区卫生。(2)考虑到目前我国经济社会发展的实际情况和提供公共卫生服务的专业公共卫生机构的保障水平、能力和服务质量的不均衡现状,研究重点考虑了投入对公共卫生服务体系绩效的影响,将“当年各级财政拨付的公共卫生服务经费”作为指标,建立投入、产出及结果等三位一体的评价指标体系。(3)研究在采纳疾病控制等传统公共卫生服务和国外经验的基础上,结合我国当前公共卫生实践和卫生政策,不仅构建了具有较强实时性和实用性的评价指标体系,并应用26个省级评价主体的数据开展了实证研究,对指标体系的信度和效度进行了评价。
Aim:The study is aimed to illustrate the infrastructure of the delivery system of public health services with Chinese characteristics, to highlight the potential approach for evaluating the effectiveness and efficiency of the delivery system, and to establish a performance indicator system in accordance with the present situation in China and oriented to the future development.
Content and methods:Literature review was conducted to define basic concepts such as performance, performance evaluation, to compare different approaches of performance evaluation, to select performance indicators, and to examine the relevant studies conducted both in China and abroad. Delphi method and analytical hierarchy process were adopted to establish the performance indicator system for the delivery system of public health services. Data from 26 provinces were used to assess validity and reliability of the performance indicators and results were discussed afterwards. The expected application of the performance indicator system for the delivery system of public health services was discussed as well.
Results:The infrastructure of the delivery system of public health services with Chinese characteristics was illustrated. The framework of performance evaluation for health system adopted by the World Health Organization and the Donabedian's "structure, process, and output" logic model were used for reference to establish the 3-level performance indicator system. The logic model established in the study is called "input, output, and outcome model". The performance indicator system is consisted with 3 indicators at 1st level,12 indicators at 2nd level, and 25 indicators at 3rd level. Data from 26 provinces in 2008 were used to assess validity and reliability of the performance indicators and results were discussed. The performance of the delivery system for public health services in 26 provinces was ranked by the scores calculated from the performance indicator system established under the study. The expected application of the performance indicator system for the delivery system of public health services and the key control knobs was discussed as well.
Conclusion:The research method used to establish the performance indicator system for the delivery system of public health services in the study is reasonable. The coverage of the performance indicator system is broad, systematic and with appropriate priorities. As a whole, the performance indicator system is valid and reliable. With the current framework for performance evaluation, the most important influencing factor for the performance of the public health services provision is input. The study is valuable and informative in the following two aspects. One aspect is to highlight the potential approach for evaluating effectiveness and efficiency of the deliveri system. The other is to establish a performance indicator system in accordance with the present situation in China and oriented to the future development.
Innovation:(1) It is argued in the study that the professional public health institutions are the predominant providers for public health services and the medical facilities at township and village levels work as the basis for the delivery of public health services. The medical facilities at county and above administrative level providing public health services are important as well. Based on the reality of the provision of public health services in the country, the author argued that the delivery system of public health services with Chinese characteristics was consisted of disease prevention and control system, maternal and child health system, rural and community health system. (2) In recognition of the economic and social development of the country and the current financial status, capability, and the service quality of the professional public health institutions, the input was given the highest priority for its impact on the performance of the delivery system of the public health services in the study. Furthermore, the financial resource allocated annually to the public health by provincial and lower administrative level was selected as an indicator. The logic model of "input, output, and outcome" was established in the study to set up the performance indicator system. (3) Based on the critical review of traditional public health services both in China and abroad, the author established a practical performance indicator system for the delivery of public health services by integrating the current public health practice and policies into the study. More importantly, data from 26 provinces in 2008 were used to assess validity and reliability of the performance indicators.
内容及方法：采用文献综述法,明确绩效、绩效评价等基本概念,比较分析主要的绩效评价方法,初步筛选可资选取的绩效考核指标,借鉴国内外已经开展的绩效评价研究中的经验和成果；结合我国公共卫生服务体系的实际情况,运用德尔菲法和层次分析等方法,构建公共卫生服务体系、绩效评价指标体系；选择26个省份作为样本,对绩效评价指标体系进行实证研究,评价指标的信度与效度；对实证研究结果进行讨论,对研究建立的公共卫生服务体系绩效评价指标体系在实践中的应用进行前瞻。
结果：研究界定了具有中国特色的公共卫生服务体系的范畴。借鉴WHO卫生系统绩效评价的概念框架和Donabedian的结构、过程、结果三维评价框架,确定了投入—产出—结果三个维度构建的三级指标体系,具体包括：3个一级指标,12个二级指标和25个三级指标,利用层次分析法确定了指标的权重系数,并应用26个省份2008年度的数据对指标体系进行了实证研究,根据研究所设计的指标体系得出了样本省份的公共卫生服务体系绩效值,并进行了排序。最后,对研究建立起的指标体系的应用和实施公共卫生服务绩效评价的关键环节进行了讨论。
结论：研究所建立的公共卫生服务体系绩效评价指标体系的方法合理,指标构成全面、系统、重点突出,经过实证研究,认为可信有效。在当前的绩效评价指标体系框架下,公共卫生服务的绩效的主要影响因素是投入。本研究为研究探索评价公共卫生服务体系建设和投入效果、效益的思路,建立起符合我国现实情况、具有一定导向性的公共卫生服务体系绩效评价指标体系,进行了有益的尝试。
创新性：(1)根据目前公共卫生服务体系发展现状,研究提出了我国公共卫生服务体系构成的主体是各级专业公共卫生机构,基础是承担公共卫生服务功能的基层医疗卫生机构,提供公共卫生服务的县级及以上的医疗机构是不可缺少的组成部分,并从实际应用出发,界定了具有中国特色的公共卫生服务体系的范畴,主要包括：疾病预防控制、妇幼保健、农村和社区卫生。(2)考虑到目前我国经济社会发展的实际情况和提供公共卫生服务的专业公共卫生机构的保障水平、能力和服务质量的不均衡现状,研究重点考虑了投入对公共卫生服务体系绩效的影响,将“当年各级财政拨付的公共卫生服务经费”作为指标,建立投入、产出及结果等三位一体的评价指标体系。(3)研究在采纳疾病控制等传统公共卫生服务和国外经验的基础上,结合我国当前公共卫生实践和卫生政策,不仅构建了具有较强实时性和实用性的评价指标体系,并应用26个省级评价主体的数据开展了实证研究,对指标体系的信度和效度进行了评价。
Aim:The study is aimed to illustrate the infrastructure of the delivery system of public health services with Chinese characteristics, to highlight the potential approach for evaluating the effectiveness and efficiency of the delivery system, and to establish a performance indicator system in accordance with the present situation in China and oriented to the future development.
Content and methods:Literature review was conducted to define basic concepts such as performance, performance evaluation, to compare different approaches of performance evaluation, to select performance indicators, and to examine the relevant studies conducted both in China and abroad. Delphi method and analytical hierarchy process were adopted to establish the performance indicator system for the delivery system of public health services. Data from 26 provinces were used to assess validity and reliability of the performance indicators and results were discussed afterwards. The expected application of the performance indicator system for the delivery system of public health services was discussed as well.
Results:The infrastructure of the delivery system of public health services with Chinese characteristics was illustrated. The framework of performance evaluation for health system adopted by the World Health Organization and the Donabedian's "structure, process, and output" logic model were used for reference to establish the 3-level performance indicator system. The logic model established in the study is called "input, output, and outcome model". The performance indicator system is consisted with 3 indicators at 1st level,12 indicators at 2nd level, and 25 indicators at 3rd level. Data from 26 provinces in 2008 were used to assess validity and reliability of the performance indicators and results were discussed. The performance of the delivery system for public health services in 26 provinces was ranked by the scores calculated from the performance indicator system established under the study. The expected application of the performance indicator system for the delivery system of public health services and the key control knobs was discussed as well.
Conclusion:The research method used to establish the performance indicator system for the delivery system of public health services in the study is reasonable. The coverage of the performance indicator system is broad, systematic and with appropriate priorities. As a whole, the performance indicator system is valid and reliable. With the current framework for performance evaluation, the most important influencing factor for the performance of the public health services provision is input. The study is valuable and informative in the following two aspects. One aspect is to highlight the potential approach for evaluating effectiveness and efficiency of the deliveri system. The other is to establish a performance indicator system in accordance with the present situation in China and oriented to the future development.
Innovation:(1) It is argued in the study that the professional public health institutions are the predominant providers for public health services and the medical facilities at township and village levels work as the basis for the delivery of public health services. The medical facilities at county and above administrative level providing public health services are important as well. Based on the reality of the provision of public health services in the country, the author argued that the delivery system of public health services with Chinese characteristics was consisted of disease prevention and control system, maternal and child health system, rural and community health system. (2) In recognition of the economic and social development of the country and the current financial status, capability, and the service quality of the professional public health institutions, the input was given the highest priority for its impact on the performance of the delivery system of the public health services in the study. Furthermore, the financial resource allocated annually to the public health by provincial and lower administrative level was selected as an indicator. The logic model of "input, output, and outcome" was established in the study to set up the performance indicator system. (3) Based on the critical review of traditional public health services both in China and abroad, the author established a practical performance indicator system for the delivery of public health services by integrating the current public health practice and policies into the study. More importantly, data from 26 provinces in 2008 were used to assess validity and reliability of the performance indicators.
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