公共产品政府供给绩效评估理论与实证分析
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摘要
随着科学发展观的进一步贯彻落实,开展以公共产品政府供给绩效评估将是政府绩效评估的重点和方向。本文在综述新公共管理和有关政府绩效评估理论、政府绩效评估指标、影响政府绩效主要因素等理论、观点和模型基础上,构建了公共产品政府供给绩效评估理论框架、公共产品政府供给绩效评估指标体系和公共产品政府供给绩效影响因素模型,从绩效指数、绩效改善指数、绩效差异指数、绩效同步指数、绩效影响因子贡献度等视角入手,运用结构方程模型方法实证分析了我国公共产品省级政府供给绩效现状,提出了提升公共产品政府供给绩效的政策建议。主要内容如下:
1.构建了公共产品政府供给绩效评估理论框架。国内外学者对政府绩效及其评估展开了长期、热烈、持续的讨论,但鲜有对公共产品政府供给绩效进行全面系统研究。本文尝试整合构建一个公共产品政府供给绩效评估理论系统。这一理论系统主要包括公共产品政府供给绩效评估原则系统、指标系统、标准系统、方法系统、分析系统、组织实施系统、结果应用系统等。
2.设计了公共产品政府供给绩效评估指标体系。在比较国内外有关理论研究和政府绩效评估指标体系基础上,提出了从理论指标体系到可用指标体系再到实践指标体系的思路,以公共产品类别模型为基础,设计了指标体系构建路径模型并运用因子分析法遴选优化指标,构建了由125个硬指标组成的公共产品政府供给绩效评估指标体系。
3.尝试运用结构方程模型开展对公共产品政府供给绩效进行评估。结构方程模型方法具有较多优点,通过客观数据拟合出来模型中各因子的路径系数来确定指标体系的归属及指标权重的方法,适合分析公共产品政府供给绩效。本文在收集大量统计样本数据基础上,运用结构方程模型方法实证分析了我国公共科技、公共教育、公共卫生、公共文化、公共设施等125个具体指标以及由这些指标构成的投入、产出、效果的客观权重。我们不仅据此计算出公共科技、公共教育、公共卫生、公共文化、公共设施等各类别绩效以及公共产品政府供给总绩效,而且给出了公共产品各类别间的相互影响关系。而通常在进行政府绩效评估时,我们往往习惯于把事实上有内在联系的总绩效中的各类别看作是互不相关的个体,人为地割裂开来进行分析。
4.研究了测度和评价公共产品政府供给绩效的分析技术。从绩效指数、绩效改善指数、绩效差异指数、绩效同步指数以及绩效影响因子贡献度等视角入手,从静态、动态等多维度分析了我国省级政府公共产品供给绩效状况,得出了总体绩效不足、区域差距加大、类别结构失衡、低位爬升加快、经济支撑明显的基本结论。这些分析技术为公共产品政府供给绩效评估提供了多维度的分析工具,为科学评估公共产品政府供给绩效提供了新的视角。
5.提出了提升公共产品政府供给绩效的政策建议。在构建公共产品政府供给绩效影响因素模型的基础上,尝试从经济的、科技的、政治的、文化的、制度或体制机制的、历史的、人口的等因素来分析影响政府供给绩效高低的作用机理。结合我国公共产品政府供给绩效的基本结论,提出了实现基本公共服务能力的均等化,提升公共服务度、公共投入度,建立最低供给标准、基准供给标准,加大对公共产品供给“塌陷区”扶持力度,开展第三方评估等提高公共产品政府供给绩效的政策建议。
With the further implementation of Scientific Concept of Development, government performance evaluation of public goods supply will become the focus and guideline of government performance evaluation. Based on review of theories, viewpoints, and models of New Public Management, relevant government performance evaluation methods, indicators, and major affecting factors of government performance, etc., this research constructs a theoretical framework and an indicator system for government evaluation of public goods supply, as well as a model of affecting factors for government evaluation of public goods supply, and conducts an empirical study on the actual state of government performance of public goods supply of different provinces in China in view of performance indicators, improvement indicators, diversity indicators, simultaneity indicators and contribution rates of various affecting factors. In the final part, this research consequently gives policy suggestions for promoting government performance of public goods supply. Main contents of the research include:
(1) Construction of theoretical system for government evaluation of public goods supply. Large amount of arguments on government performance and its evaluation have been taken by scholars at home and abroad, though, a global and systematic research on the evaluation of public goods supply is still rare. This research tries to construct an integrated theoretical system for government evaluation of public goods supply, which mainly includes system of principles for evaluation, indicator system, criteria system, method system, analysis system, implementation system, and application system etc.
(2) Development of indicator system for government performance evaluation of public good supply. Based on comparison of relevant theories, researches and indicator systems of government performance evaluation, this research comes up with an approach that from theoretic indicator system to applicable indicator system then practical system; taking the basis of categories of public goods, a path model of development of indicator system has been designed; and with Factor Analysis Method, 125 inflexible indicators have been selected to form an indicator system for government performance evaluation of public goods supply.
(3) Analysis of status quo of public goods supply of provincial governments in China. The research conducts an empirical research on 125 specific indicators of public goods, e.g. public S&T, public education, public medical care & health, public culture, and infrastructure, etc. and objective weights of input, output and efficiency thereof with Structural Equation Model, and determines individual performance of various categories, global performance of public goods supply, and the interrelationship between them. The result shows that there are problems such as insufficient global performance, increasing regional diversity, structural imbalance of categories, accelerated progress of low-level and obvious support from economy, etc.
(4) Research on evaluation methods for measuring and assessing government performance of public goods supply. In view of performance indicators, improvement indicators, diversity indicators, simultaneity indicators and contribution rate of affecting factors etc. and with multi-dimensional analysis of static and dynamic conditions, the research analyzes status quo of public goods supply performance of provincial governments in China. The method provides a multi-dimensional tool for government performance evaluation of pubic goods supply, as well as a brand new perspective for scientific assessment of government performance of public goods supply.
(5) Policy Suggestions for promoting government performance of public goods supply. Based on the affecting factors model of government performance of public goods supply, the research tries to study the influencing mechanism of social factors to the government performance of public goods supply in terms of economy, science & technology, politics, culture, social institution and system, historical, and demographic factors. Meanwhile, combining the conclusions above, policy suggestions such as equalization of basic public service capacity, public service rate, public input rate, minimum-standard of public supply, reference standard of public supply, more support for the "sinking region" of public goods supply, and development of third-party assessment, etc. have been advanced in the research so as to promote government performance of public goods supply.
1.构建了公共产品政府供给绩效评估理论框架。国内外学者对政府绩效及其评估展开了长期、热烈、持续的讨论,但鲜有对公共产品政府供给绩效进行全面系统研究。本文尝试整合构建一个公共产品政府供给绩效评估理论系统。这一理论系统主要包括公共产品政府供给绩效评估原则系统、指标系统、标准系统、方法系统、分析系统、组织实施系统、结果应用系统等。
2.设计了公共产品政府供给绩效评估指标体系。在比较国内外有关理论研究和政府绩效评估指标体系基础上,提出了从理论指标体系到可用指标体系再到实践指标体系的思路,以公共产品类别模型为基础,设计了指标体系构建路径模型并运用因子分析法遴选优化指标,构建了由125个硬指标组成的公共产品政府供给绩效评估指标体系。
3.尝试运用结构方程模型开展对公共产品政府供给绩效进行评估。结构方程模型方法具有较多优点,通过客观数据拟合出来模型中各因子的路径系数来确定指标体系的归属及指标权重的方法,适合分析公共产品政府供给绩效。本文在收集大量统计样本数据基础上,运用结构方程模型方法实证分析了我国公共科技、公共教育、公共卫生、公共文化、公共设施等125个具体指标以及由这些指标构成的投入、产出、效果的客观权重。我们不仅据此计算出公共科技、公共教育、公共卫生、公共文化、公共设施等各类别绩效以及公共产品政府供给总绩效,而且给出了公共产品各类别间的相互影响关系。而通常在进行政府绩效评估时,我们往往习惯于把事实上有内在联系的总绩效中的各类别看作是互不相关的个体,人为地割裂开来进行分析。
4.研究了测度和评价公共产品政府供给绩效的分析技术。从绩效指数、绩效改善指数、绩效差异指数、绩效同步指数以及绩效影响因子贡献度等视角入手,从静态、动态等多维度分析了我国省级政府公共产品供给绩效状况,得出了总体绩效不足、区域差距加大、类别结构失衡、低位爬升加快、经济支撑明显的基本结论。这些分析技术为公共产品政府供给绩效评估提供了多维度的分析工具,为科学评估公共产品政府供给绩效提供了新的视角。
5.提出了提升公共产品政府供给绩效的政策建议。在构建公共产品政府供给绩效影响因素模型的基础上,尝试从经济的、科技的、政治的、文化的、制度或体制机制的、历史的、人口的等因素来分析影响政府供给绩效高低的作用机理。结合我国公共产品政府供给绩效的基本结论,提出了实现基本公共服务能力的均等化,提升公共服务度、公共投入度,建立最低供给标准、基准供给标准,加大对公共产品供给“塌陷区”扶持力度,开展第三方评估等提高公共产品政府供给绩效的政策建议。
With the further implementation of Scientific Concept of Development, government performance evaluation of public goods supply will become the focus and guideline of government performance evaluation. Based on review of theories, viewpoints, and models of New Public Management, relevant government performance evaluation methods, indicators, and major affecting factors of government performance, etc., this research constructs a theoretical framework and an indicator system for government evaluation of public goods supply, as well as a model of affecting factors for government evaluation of public goods supply, and conducts an empirical study on the actual state of government performance of public goods supply of different provinces in China in view of performance indicators, improvement indicators, diversity indicators, simultaneity indicators and contribution rates of various affecting factors. In the final part, this research consequently gives policy suggestions for promoting government performance of public goods supply. Main contents of the research include:
(1) Construction of theoretical system for government evaluation of public goods supply. Large amount of arguments on government performance and its evaluation have been taken by scholars at home and abroad, though, a global and systematic research on the evaluation of public goods supply is still rare. This research tries to construct an integrated theoretical system for government evaluation of public goods supply, which mainly includes system of principles for evaluation, indicator system, criteria system, method system, analysis system, implementation system, and application system etc.
(2) Development of indicator system for government performance evaluation of public good supply. Based on comparison of relevant theories, researches and indicator systems of government performance evaluation, this research comes up with an approach that from theoretic indicator system to applicable indicator system then practical system; taking the basis of categories of public goods, a path model of development of indicator system has been designed; and with Factor Analysis Method, 125 inflexible indicators have been selected to form an indicator system for government performance evaluation of public goods supply.
(3) Analysis of status quo of public goods supply of provincial governments in China. The research conducts an empirical research on 125 specific indicators of public goods, e.g. public S&T, public education, public medical care & health, public culture, and infrastructure, etc. and objective weights of input, output and efficiency thereof with Structural Equation Model, and determines individual performance of various categories, global performance of public goods supply, and the interrelationship between them. The result shows that there are problems such as insufficient global performance, increasing regional diversity, structural imbalance of categories, accelerated progress of low-level and obvious support from economy, etc.
(4) Research on evaluation methods for measuring and assessing government performance of public goods supply. In view of performance indicators, improvement indicators, diversity indicators, simultaneity indicators and contribution rate of affecting factors etc. and with multi-dimensional analysis of static and dynamic conditions, the research analyzes status quo of public goods supply performance of provincial governments in China. The method provides a multi-dimensional tool for government performance evaluation of pubic goods supply, as well as a brand new perspective for scientific assessment of government performance of public goods supply.
(5) Policy Suggestions for promoting government performance of public goods supply. Based on the affecting factors model of government performance of public goods supply, the research tries to study the influencing mechanism of social factors to the government performance of public goods supply in terms of economy, science & technology, politics, culture, social institution and system, historical, and demographic factors. Meanwhile, combining the conclusions above, policy suggestions such as equalization of basic public service capacity, public service rate, public input rate, minimum-standard of public supply, reference standard of public supply, more support for the "sinking region" of public goods supply, and development of third-party assessment, etc. have been advanced in the research so as to promote government performance of public goods supply.
引文
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