社会服务采购管理:模式之争与改革取向
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摘要
当下政府采购中的"规范"与"效率"问题,并非"程序导向型"管理模式之过。急于推动政府采购从"程序导向型"管理模式向"结果导向型"管理模式转换存在较大隐患,因为中国目前并不具备后者适用的充分条件。而且,"结果导向型"管理模式特别不适用于社会服务采购。社会服务采购管理需秉持"结构、过程与结果"的系统视域,"结果导向的过程管理模式"可以整合过程控制与结果控制的优势。该模式包括两方面内容:其一,过程控制是社会服务采购管理工作的基础和重点。其二,过程控制以结果控制为导向,这又包含两层含义:一是过程控制以产生良好的结果为导向;二是过程控制以有助于发挥结果控制的作用为导向。
The problems of"norm"and"efficiency"in government procurement are not caused by"procedure-oriented management model". It is a big hidden danger to put forward that government procurement should be transformed from"procedure-oriented management mode"to"result-oriented management mode", because China does not fully meet the applicable conditions of the latter at present. Moreover, the"results-oriented management model"is not particularly suitable for the procurement of social services. The management of social service procurement needs to adhere to the system vision of"structure, process and result", and"result-oriented process management model"can integrate the comprehensive advantages of process control and result control. The model includes two aspects:(1) process control is the basis and focus of social service procurement management;(2) process control is result-oriented, which contains two meanings: one is process control to produce good results, the other is process control to help play the role of result control.
The problems of"norm"and"efficiency"in government procurement are not caused by"procedure-oriented management model". It is a big hidden danger to put forward that government procurement should be transformed from"procedure-oriented management mode"to"result-oriented management mode", because China does not fully meet the applicable conditions of the latter at present. Moreover, the"results-oriented management model"is not particularly suitable for the procurement of social services. The management of social service procurement needs to adhere to the system vision of"structure, process and result", and"result-oriented process management model"can integrate the comprehensive advantages of process control and result control. The model includes two aspects:(1) process control is the basis and focus of social service procurement management;(2) process control is result-oriented, which contains two meanings: one is process control to produce good results, the other is process control to help play the role of result control.
引文
(1)《2017年全国政府采购简要情况》,内容引自中华人民共和国财政部网,2018年9月30日。
(2)民政部政策研究中心课题组:《关于社会服务发展演进与概念定义的探析》,《中国民政》2011年第6期。
(3)《关于加强政府采购活动内部控制管理的指导意见》(财库[2016]99号),内容引自中国政府采购网,2018年10月15日。
(4)Donald F.Kettl,The Transformation of Governance:Public Administration for Twenty-First Century America,Baltimore:Johns Hopkins University Press,2002;Amir Hefetz,Mildred Warner,“Beyond the Market versus Planning Dichotomy:Understanding Privatization and Its Reverse in U.S.Cities”,Local Government Studies,Vol.33,No.4,2007,pp.555-572;Mildred E.Warner,GermàBel,“Competition or Monopoly?Comparing Privatization of Local Public Services in the U.S.and Spain”,Public Administration,Vol.86,No.3,2008,pp.723-735.
(5)E.S.Savas,“Competition and Choice in New York City Social Services”,Public Administration Review,Vol.62,No.1,2002,pp.82-91.
(6)Oliver Hart,Andrei Shleifer,Robert W.Vishny,“The Proper Scope of Government:Theory and an Application to Prisons”,Quarterly Journal of Economics,Vol.112,No.4,1997,pp.1126-1161.
(7)Amanda M.Girth,Amir Hefetz,Jocelyn M.Johnston,Mildred E.Warner,“Outsourcing Public Service Delivery:Management Responses in Noncompetitive Markets”,Public Administration Review,Vol.72,No.6,2012,pp.887-900.
(8)Ruth Hoogland Dehoog,Lester M.Salamon,Purchaseof-Service Contracting,Lester M.Salamon(eds),The Tools of Government:A Guide to the New Governance,Oxford:Oxford University Press,2002,pp.319-320.
(9)Randall Peerenboom,China's Long March Toward Rule of Law,Cambridge:Cambridge University Press,2002,pp.424-431.
(10)缪艳娟:《企业内部控制监管:基于过程还是结果》,《财会月刊》2008年第7期。
(11)(12)刘坤:《深化改革,创新制度,努力开创政府采购工作新局面》,《中国财政》2013年第24期。
(13)赵家旺、贾璐:《政府采购需要建一艘现代化的新船--访清华大学教授于安》,《中国政府采购报》2012年6月29日。
(14)王浦劬,莱斯特·M.萨拉蒙等:《政府向社会组织购买公共服务研究:中国与全球经验分析》,北京:北京大学出版社,2010年;苏明、贾西津等:《中国政府购买公共服务研究》,《财政研究》2010年第1期。
(15)Avedis Donabedian,“The quality of care.How can it be assessed?”Journal of the American Medical Association,Vol.260,No.12,1988,pp.1743-1748.
(16)Grazia Ietto-Gillies,“On Quasi-Markets and Privatizations in Public Services”,International Review of Applied Economics,Vol.22,No.3,2008,pp.387-395.
(17)Jocelyn M.Johnston,Barbara S.Romzek,“Social Welfare Contracts as Networks:The Impact of Networks Stability on Management and Performance”,Administration&Society,Vol.40,No.2,2008,pp.115-146.
(2)民政部政策研究中心课题组:《关于社会服务发展演进与概念定义的探析》,《中国民政》2011年第6期。
(3)《关于加强政府采购活动内部控制管理的指导意见》(财库[2016]99号),内容引自中国政府采购网,2018年10月15日。
(4)Donald F.Kettl,The Transformation of Governance:Public Administration for Twenty-First Century America,Baltimore:Johns Hopkins University Press,2002;Amir Hefetz,Mildred Warner,“Beyond the Market versus Planning Dichotomy:Understanding Privatization and Its Reverse in U.S.Cities”,Local Government Studies,Vol.33,No.4,2007,pp.555-572;Mildred E.Warner,GermàBel,“Competition or Monopoly?Comparing Privatization of Local Public Services in the U.S.and Spain”,Public Administration,Vol.86,No.3,2008,pp.723-735.
(5)E.S.Savas,“Competition and Choice in New York City Social Services”,Public Administration Review,Vol.62,No.1,2002,pp.82-91.
(6)Oliver Hart,Andrei Shleifer,Robert W.Vishny,“The Proper Scope of Government:Theory and an Application to Prisons”,Quarterly Journal of Economics,Vol.112,No.4,1997,pp.1126-1161.
(7)Amanda M.Girth,Amir Hefetz,Jocelyn M.Johnston,Mildred E.Warner,“Outsourcing Public Service Delivery:Management Responses in Noncompetitive Markets”,Public Administration Review,Vol.72,No.6,2012,pp.887-900.
(8)Ruth Hoogland Dehoog,Lester M.Salamon,Purchaseof-Service Contracting,Lester M.Salamon(eds),The Tools of Government:A Guide to the New Governance,Oxford:Oxford University Press,2002,pp.319-320.
(9)Randall Peerenboom,China's Long March Toward Rule of Law,Cambridge:Cambridge University Press,2002,pp.424-431.
(10)缪艳娟:《企业内部控制监管:基于过程还是结果》,《财会月刊》2008年第7期。
(11)(12)刘坤:《深化改革,创新制度,努力开创政府采购工作新局面》,《中国财政》2013年第24期。
(13)赵家旺、贾璐:《政府采购需要建一艘现代化的新船--访清华大学教授于安》,《中国政府采购报》2012年6月29日。
(14)王浦劬,莱斯特·M.萨拉蒙等:《政府向社会组织购买公共服务研究:中国与全球经验分析》,北京:北京大学出版社,2010年;苏明、贾西津等:《中国政府购买公共服务研究》,《财政研究》2010年第1期。
(15)Avedis Donabedian,“The quality of care.How can it be assessed?”Journal of the American Medical Association,Vol.260,No.12,1988,pp.1743-1748.
(16)Grazia Ietto-Gillies,“On Quasi-Markets and Privatizations in Public Services”,International Review of Applied Economics,Vol.22,No.3,2008,pp.387-395.
(17)Jocelyn M.Johnston,Barbara S.Romzek,“Social Welfare Contracts as Networks:The Impact of Networks Stability on Management and Performance”,Administration&Society,Vol.40,No.2,2008,pp.115-146.