中英政府投资项目建设标准对比研究
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摘要
随着经济体制改革的逐步深化,关于政府投资项目的研究已成为建筑管理领域研究的新热点。先后出台的中央和地方的政府投资项目建设标准使我国政府投资项目建设有了明确的依据。从建设领域实践经验来看,这些标准起到了一定的作用,但从整体来看,我国政府投资项目投资绩效依然相对低下。文章从我国政府投资项目建设标准内容为切入点,采用系统分析、定量分析与定性分析相结合的方法,研究了我国政府投资项目的实施模式、监管体系、审计与绩效评价体系存在的问题。
在英国,公共工程的绩效管理一直建筑管理领域研究的重点。英国公共工程建设被纳入政府采购范畴。英国公共工程实施过程中也曾有类似的超预算、超工期、投资绩效低下等弊病,但英国通过实施工程项目创优活动有效解决了公共工程实施中的诸多问题。文章以英国公共工程实施的体制为切入点,一方面从公共工程法制、公共工程实施体制、公共工程建筑市场运行机制三方面重点研究了在公共工程管理法律、法规体系中占重要地位的工程入门审查制度和通用最小化标准;另一方面以建设程序为序研究了英国公共工程采购策略、实施程序、管理模式、监管体系、审计和绩效评价体系中的独特之处,总结了英国公共工程实施过程中的经验与教训。
在此基础上,文章一方面以建设程序为序对我国和英国的政府投资项目建设标准进行了全面的对比研究,另一方面在较为宏观的政府投资项目实施理念、标准体系框架、政府投资项目管理技术层面进行对比研究。最后提出了完善我国政府投资项目建设标准的建议。
With the reform of economic system of China, researches on government investment projects have been a new hot topic in construction management field. The construction criterions for government investment projects released by the central government and local governments made it have concrete foundation for carry on these projects. From the prospective of construction practice, these criterions play a certain role in regulating government investment projects but as a whole, the performance is still relatively low. By analyzing content of criterions, the paper utilizes systematical analysis, qualitative analysis and quantitative analysis approaches to research dilemmas in operation modes, supervision systems, auditing and performance evaluation systems when carry on government investment projects.
In the UK, performance management of public works has been a key research topic in construction management field. The construction of public works belongs to the fields of government procurement. There were shortcomings in the course of carrying on public works, such as over-budget, over completion time, low performance, in previous times. By the activity of“Achieving Excellence in Construction”, these problems are settled perfectly. On the basis of analyzing operation modes of public works, the paper carries on research from two aspects. On one hand, it researches the Gateway Review system and Common Minimum Standards, which have an important role in laws and regulations systems for public works. On the other hand, it researches unique characteristics by the sequence of construction process in project procurement, operation modes, management modes, supervision systems, auditing and performance management aspects. Then, conclusion is drawn to illustrate the experience and lessons in carry on public works.
On the basis of these researches, the paper carries on comparison study from two aspects: from the prospective of contents of criterions and from the aims to carry on public works, framework of criterions, management skills, which are in a macroscopically level. At last, it presents suggestions for perfect our construction criterions on government investment projects.
在英国,公共工程的绩效管理一直建筑管理领域研究的重点。英国公共工程建设被纳入政府采购范畴。英国公共工程实施过程中也曾有类似的超预算、超工期、投资绩效低下等弊病,但英国通过实施工程项目创优活动有效解决了公共工程实施中的诸多问题。文章以英国公共工程实施的体制为切入点,一方面从公共工程法制、公共工程实施体制、公共工程建筑市场运行机制三方面重点研究了在公共工程管理法律、法规体系中占重要地位的工程入门审查制度和通用最小化标准;另一方面以建设程序为序研究了英国公共工程采购策略、实施程序、管理模式、监管体系、审计和绩效评价体系中的独特之处,总结了英国公共工程实施过程中的经验与教训。
在此基础上,文章一方面以建设程序为序对我国和英国的政府投资项目建设标准进行了全面的对比研究,另一方面在较为宏观的政府投资项目实施理念、标准体系框架、政府投资项目管理技术层面进行对比研究。最后提出了完善我国政府投资项目建设标准的建议。
With the reform of economic system of China, researches on government investment projects have been a new hot topic in construction management field. The construction criterions for government investment projects released by the central government and local governments made it have concrete foundation for carry on these projects. From the prospective of construction practice, these criterions play a certain role in regulating government investment projects but as a whole, the performance is still relatively low. By analyzing content of criterions, the paper utilizes systematical analysis, qualitative analysis and quantitative analysis approaches to research dilemmas in operation modes, supervision systems, auditing and performance evaluation systems when carry on government investment projects.
In the UK, performance management of public works has been a key research topic in construction management field. The construction of public works belongs to the fields of government procurement. There were shortcomings in the course of carrying on public works, such as over-budget, over completion time, low performance, in previous times. By the activity of“Achieving Excellence in Construction”, these problems are settled perfectly. On the basis of analyzing operation modes of public works, the paper carries on research from two aspects. On one hand, it researches the Gateway Review system and Common Minimum Standards, which have an important role in laws and regulations systems for public works. On the other hand, it researches unique characteristics by the sequence of construction process in project procurement, operation modes, management modes, supervision systems, auditing and performance management aspects. Then, conclusion is drawn to illustrate the experience and lessons in carry on public works.
On the basis of these researches, the paper carries on comparison study from two aspects: from the prospective of contents of criterions and from the aims to carry on public works, framework of criterions, management skills, which are in a macroscopically level. At last, it presents suggestions for perfect our construction criterions on government investment projects.
引文
[1]黄霆,申立银,赵振宇,任志浩.我国政府投资项目管理的现状分析[J].建筑经济, 2005, (1):16-20.
[2]陈清.中外政府投资体制比较研究[J].亚太经济, 2005, (4):71-73.
[3]谷立霞.西方市场经济发达国家政府投资监管的特点及启示[J].经济研究参考, 2005, (52).
[4]中国土木工程学会.中国土木工程学会赴英国瑞士考察政府投资工程招标投标监管的法律和实务的报告[J].建筑市场与招标投标, 2008, (1):12-19.
[5]李艳飞.英国公共投资项目管理寻租问题研究[J].项目管理技术, 2004, (9):19-23.
[6]余建星,张小平,段晓晨.基于FIS、BPNN方法的政府投资项目投资估算方法[J].工业工程, 2007, (11):82-86.
[7]段晓晨,邢红宏,张小平.政府投资项目的BPNN、Delphi、GM(1,1)投资估算方法[J].工业工程, 2007, (9):85-88.
[8]穆祥纯.我国工程建设标准的现状及对策研究[J].特种结构, 2007, (9):106-109.
[9]陈赟,刘肇城.公共工程项目主体合谋条件的动态博弈分析[J].公路与汽运, 2006, (12):104-106.
[10]毛晔,姚玉蓉,张星.大型公共工程绩效审计模型——基于可持续性的研究[J].审计与经济研究, 2006, (9):27-30.
[11]周伟.政府投资项目投资决策体系浅析[J].园林建设管理, 2008, (1):63-66.
[12]姚兵.我国工程建设的法规体系与管理制度[J].建筑, 2004, (3):40-43.
[13]窦以松.当代工程建设技术法规与技术标准管理探讨[J].水利技术监督, 2001, (3):16-21.
[14]武振,叶英华,张智慧.新型工程建设标准体制研究[J].华中科技大学学报(城市科学版), 2006, (3):71-75.
[15]方俊,夏元友,孟凡军.政府投资工程建设标准实施模式研究.武汉理工大学硕士学位论文[D]. 2007, (5)
[16]邵卓民.欧盟建设技术法规与技术标准体制[J].建设科技, 2004, (1):54-56.
[17]甄广川.英国公共工程绩效审计[J].现代审计, 2003, (2):57-59.
[18]伊根报告. Http://www.dit.gov.uk/construction/rethink/report[R].
[19] Background of ACE. Http://www.ogc.gov.uk/guidance_excellence_in_construction.asp.
[20] Common Minimum Standards[S], 2006.
[21] Http://www.ogc.gov.uk/guidance_excellence_in_construction.asp.
[22]政府投资项目建设标准发展战略研究中期考核资料, 2007, (6):1.
[23]尹贻林,阎孝砚.政府投资项目代建制理论与实务[M], 2006, (1):35.
[24] The Public Contracts Regulations 2006[S].
[25] The Public Contracts and Utilities Contracts Regulations 2007 (Amendment)[S].
[26] The Utilities Contracts Regulations 2006[S].
[27] The OGC Gateway? Process - A manager’s checklist[M].
[28] Al-Reshaid, Nabil Kartam. Design–build pre-qualification and tendering approach for public projects [J]. International Journal of Project Management, 2005, (4):309-320.
[29] Office of Government Commerce. Achieving Excellence in Construction Procurement Guide - Initiative into action [M]. 12.
[30]瞿焱,陈跃东.政府投资项目的前期管理现状与对策研究[J].江苏商论, 2007, (11):152-154.
[31]国家发展改革委宏观经济研究院政府投资管理体制课题组.英国公共投资中私人资本的参与与风险控制[J].中国经贸导刊, 2004, (18):20-21.
[32]薛经秋.政府投资项目的管理新模式[J].福建建筑, 2008, (1):78-80.
[33]兰定筠.政府投资项目代建制制度设计研究.重庆大学博士学位论文[D]. 34.
[34]王淑荣,李颖,孙忠云.简介英国、意大利政府投资项目监督管理体制[J].中国财政, 2007, (11):76-77.
[35]吴秋艳,周国栋.深化政府投资项目管理体制改革的思考[J].宏观经济管理, 2008, (2):42-44.
[36]张新宇.浅析政府投资项目绩效审计评价的指标和标准[J].山东行政学院山东省经济管理干部学院学报. 2007, (12):99-101.
[37]吕书斌.我国公共工程建设效率影响因素分析[J].合作经济与科技, 2008, (1):118-119.
[2]陈清.中外政府投资体制比较研究[J].亚太经济, 2005, (4):71-73.
[3]谷立霞.西方市场经济发达国家政府投资监管的特点及启示[J].经济研究参考, 2005, (52).
[4]中国土木工程学会.中国土木工程学会赴英国瑞士考察政府投资工程招标投标监管的法律和实务的报告[J].建筑市场与招标投标, 2008, (1):12-19.
[5]李艳飞.英国公共投资项目管理寻租问题研究[J].项目管理技术, 2004, (9):19-23.
[6]余建星,张小平,段晓晨.基于FIS、BPNN方法的政府投资项目投资估算方法[J].工业工程, 2007, (11):82-86.
[7]段晓晨,邢红宏,张小平.政府投资项目的BPNN、Delphi、GM(1,1)投资估算方法[J].工业工程, 2007, (9):85-88.
[8]穆祥纯.我国工程建设标准的现状及对策研究[J].特种结构, 2007, (9):106-109.
[9]陈赟,刘肇城.公共工程项目主体合谋条件的动态博弈分析[J].公路与汽运, 2006, (12):104-106.
[10]毛晔,姚玉蓉,张星.大型公共工程绩效审计模型——基于可持续性的研究[J].审计与经济研究, 2006, (9):27-30.
[11]周伟.政府投资项目投资决策体系浅析[J].园林建设管理, 2008, (1):63-66.
[12]姚兵.我国工程建设的法规体系与管理制度[J].建筑, 2004, (3):40-43.
[13]窦以松.当代工程建设技术法规与技术标准管理探讨[J].水利技术监督, 2001, (3):16-21.
[14]武振,叶英华,张智慧.新型工程建设标准体制研究[J].华中科技大学学报(城市科学版), 2006, (3):71-75.
[15]方俊,夏元友,孟凡军.政府投资工程建设标准实施模式研究.武汉理工大学硕士学位论文[D]. 2007, (5)
[16]邵卓民.欧盟建设技术法规与技术标准体制[J].建设科技, 2004, (1):54-56.
[17]甄广川.英国公共工程绩效审计[J].现代审计, 2003, (2):57-59.
[18]伊根报告. Http://www.dit.gov.uk/construction/rethink/report[R].
[19] Background of ACE. Http://www.ogc.gov.uk/guidance_excellence_in_construction.asp.
[20] Common Minimum Standards[S], 2006.
[21] Http://www.ogc.gov.uk/guidance_excellence_in_construction.asp.
[22]政府投资项目建设标准发展战略研究中期考核资料, 2007, (6):1.
[23]尹贻林,阎孝砚.政府投资项目代建制理论与实务[M], 2006, (1):35.
[24] The Public Contracts Regulations 2006[S].
[25] The Public Contracts and Utilities Contracts Regulations 2007 (Amendment)[S].
[26] The Utilities Contracts Regulations 2006[S].
[27] The OGC Gateway? Process - A manager’s checklist[M].
[28] Al-Reshaid, Nabil Kartam. Design–build pre-qualification and tendering approach for public projects [J]. International Journal of Project Management, 2005, (4):309-320.
[29] Office of Government Commerce. Achieving Excellence in Construction Procurement Guide - Initiative into action [M]. 12.
[30]瞿焱,陈跃东.政府投资项目的前期管理现状与对策研究[J].江苏商论, 2007, (11):152-154.
[31]国家发展改革委宏观经济研究院政府投资管理体制课题组.英国公共投资中私人资本的参与与风险控制[J].中国经贸导刊, 2004, (18):20-21.
[32]薛经秋.政府投资项目的管理新模式[J].福建建筑, 2008, (1):78-80.
[33]兰定筠.政府投资项目代建制制度设计研究.重庆大学博士学位论文[D]. 34.
[34]王淑荣,李颖,孙忠云.简介英国、意大利政府投资项目监督管理体制[J].中国财政, 2007, (11):76-77.
[35]吴秋艳,周国栋.深化政府投资项目管理体制改革的思考[J].宏观经济管理, 2008, (2):42-44.
[36]张新宇.浅析政府投资项目绩效审计评价的指标和标准[J].山东行政学院山东省经济管理干部学院学报. 2007, (12):99-101.
[37]吕书斌.我国公共工程建设效率影响因素分析[J].合作经济与科技, 2008, (1):118-119.