【作者】 肖艾林；

【导师】 彭向刚；

【作者基本信息】 吉林大学 ， 行政管理， 2014， 博士

【摘要】 作为以管理主义和市场取向为基础的管理工具，绩效管理在公共管理领域发挥了重要作用。政府采购绩效管理是政府绩效管理的重要组成部分，也是政府采购制度建设的重要内容，可以确保政府财政预算资金的高效使用，同时也可以提升政府采购管理水平。现阶段被纳入政府采购管辖范围的事项几乎涵盖社会生活的各个领域，不仅涉及货物和服务采购，还包括工程采购，几乎涉及经济社会的各个领域,政府采购规模和结构的变化则会对一国经济发展和产业结构产生巨大的影响。因此，分析政府采购绩效管理的价值性，并对政府采购进行价值性评估成为政府采购绩效管理的关注点。长期以来公共价值在政府行为研究中被忽视，这与公共价值在现实中的重要作用相悖。涉及公众利益的公共价值在政府采购中体现得尤为明显，市场主导型的社会强调根据市场来配置各种社会资源，凸显价值资源的独立性和特殊性，政府采购通过制度运行的绩效使其具有合法性，而制度绩效往往被简单地用经济成就来代替，这样的偏颇之处将会把公共价值和市场经济对立起来，不断提升的绩效水平并不一定带来公民对政府采购满意度的提高以及对政府采购信任水平的增加。与此同时，政府采购价格高于市场价格、采购周期长于自主采购、采购结果的利用以及财政资金的产出效益不透明也广受争议。公共价值作为一种全新的公共管理理念，体现的是政府的行为逻辑，强调的是公共服务和公共产品的公共效用、政府作为管理主体追求公共利益的价值诉求以及政府在行动过程中对公众行为主张的公益导向。公共价值塑造着公民的公共生活，促进公共福祉和个人福祉。政府采购所提供的产品和服务本身蕴含着满足公共需要的价值属性，政府正是通过实施政府采购满足公众的公共需求，并在这一过程中追求效率、公平、公正、民主、责任等公共价值。通过公共价值的输入，确保政府采购绩效管理的正确方向，将基于公共价值的绩效管理和政府采购绩效管理的工具进行理性结合，避免政府采购绩效管理陷入自身工具理性强大、价值理性虚弱的困境。通过政府采购绩效管理中出现的一些问题，剖析公共价值理念在其实践过程中的一些障碍，可以更加深入地理解以工具理性和效率至上作为价值追求的传统绩效管理无法解决的重要问题。基于公共价值的政府采购绩效管理在主体选择、制度设计、公众参与及结果使用上都有明显不同于传统绩效治理的特征，政府采购在提供公共产品满足公共需求的过程中关注并引导公众的集体偏好，确定并创造公共价值。在政府采购过程中，不仅要利用有限的财政资金在规定的周期内完成项目采购，而且需要关注和回应公民、具体项目业主及提供资金来源的纳税人偏好。公共价值在很大程度上决定着政府采购绩效是否真正得到全面体现，政府采购公共价值的建构与实现构成提升政府采购绩效管理水平的路径依赖，直接影响着政府采购绩效管理的发展方向。当前，我国正处在一个重要的历史节点上，改革进入攻坚期和深水区，全面建成小康社会进入决定性阶段。经济全球化、信息全球化、国内外贸易环境和规则对政府采购绩效管理理念、体制、程序等方面带来巨大的挑战。在这样的社会发展变化环境中，市场对资源配置起决定性作用，政府的主体地位遭到削弱，而个体的合法逐利，能够实现自我价值，同时也增加了与公共价值冲突的矛盾。政府采购绩效管理既要体现公共价值，矫正传统绩效管理效率占优的价值取向，重新回归政府行为“公共性”的本质和中心，又要体现本身的经济性，因此，政府采购绩效管理创新，建立以公共价值为理论基础的政府采购绩效管理模式，体现了理论和实践的双重需要。本文基于对政府采购绩效管理问题相关文献的梳理与研究，并借鉴行政学、管理学、财政学的理论基础，遵循马克思主义方法论，按照理论基础——现实状况——原因分析——经验借鉴——创新性思考的逻辑思路，综合运用马克思辩证唯物主义、比较分析法、逻辑分析法、价值链分析法、协同管理理论，以现阶段政府采购绩效管理为切入点，从对政府采购的公共价值分析入手，对当前政府采购绩效管理现状和成因进行了深入分析，在分析公共价值对政府采购绩效管理重要作用的基础之上，论证政府采购绩效管理的价值内生于公共价值当中，政府采购对资源的配置、对物品的分配、对利益的调整等，均应以公共价值为宗旨和归宿。基于公共价值的政府采购绩效管理的终极指向是为公众创造更多的公共价值，而非仅仅重视政府采购任务的完成和单纯的方法、技术的改进。本文对基于公共价值的我国政府采购绩效管理的基本问题、具体架构、现实形态及总体思路等方面进行了详细分析,设计了以公共价值为基础的政府采购绩效治理的理论架构：从改革预算制度，为政府采购提供合理的运行平台；完善组织模式，为政府采购提供公正的竞争环境；优化流程设计，为政府采购提供明确的架构设定；强化监督机制，为政府采购提供有效的权力制约；建立协同机制，为政府采购提供顺畅的组织协同；推进信息化建设，为政府采购提供充裕的技术储备；设定评估指标，为绩效评估提供规范的操作指引。从以上七个方面提出以公共价值为基础的政府采购绩效管理改革思路。更多还原

【Abstract】 As for managerialism and market orientation-based management tool, performancemanagement played an important role in public administration. Governmentprocurement performance management is an important part of the governmentperformance management, and also an important content of the construction of thegovernment procurement system, which can provide reliable protection to ensureefficient use of government budget funds and the level of government procurementmanagement. At present stage, issues to be included in the government procurementscope covers almost all areas of social life, not only involving the procurement of goodsand services, but also of engineering procurement, involving almost all areas ofeconomic and social life, changes in the size and structure of government procurementwill play a huge impact on a country’s economic development and industrial structure.Therefore, the analysis of the value of government procurement performancemanagement and the value evaluation of government procurement become the focusesof government procurement performance management.Public value has long been neglected in government behavior studies, which iscontrary to the important role of public value in reality. The public value of publicinterest in government procurement was especially evident. In the market-orientedsociety it emphasize on using the market to configure a variety of social resources, highlighting the value of independence and particularity of the value resources,government procurement gets its legitimacy through the performance of systemoperation, but system performance is often simply replaced by economic achievement,such biases will put the public value and market economy in opposition. The rising levelof performance does not necessarily bring an increasing satisfaction and level of trust ofcitizen on government procurement, at the same time, the government procurementprice higher than the market price, the procurement cycle longer than the independentprocurement, the utilization of the procurement results and the non-transparency ofoutput efficiency of the financial funds are highly controversial.Public value as a new public management philosophy, embodied the logic of thegovernment’s behavior, to emphasize the public effectiveness of public services andpublic goods, the government as an administrative body to pursue the public interest aswell as the value of the demands in the course of action the government acts to thepublic advocating public service oriented. Public value shapes the public life of citizens,promotes public welfare and personal well-being. Products and services offered throughgovernment procurement contains the value of satisfaction the public needs, thegovernment is to meet the public demand through the implementation of governmentprocurement, with the pursuit of efficiency, fairness, justice, democracy, responsibilityand other public values in this process. It’s significant to ensure the correct direction ofgovernment procurement performance management by entering public value. Torationally combine of the tools of public value based performance management andgovernment procurement performance management, can government procurementperformance management solve its own dilemma of powerful instrumental rationality,weak value rationality. Through some problems that appear in government procurementperformance management, We can analyze some obstacles in the course of public valuepractice, the defects can be better understood of the conventional performance management which is valued by the instrumental rationality and the sheer pursuit ofefficiency.Government procurement performance management based on public value havesignificantly different characteristics of traditional performance management, in themain selection, system design, the use of public participation and the results,government procurement collective attention and guidance to the public in the provisionof public goods to meet the public demand for government procurement process,identify and create public value. In the government procurement process, throughgovernment procurement it is not only to use the limited financial resources to completethe project procurement within the period stipulated, and require attention and respondto the preferences of citizens as the government watch-dog, project owners as theservice users, and taxpayer as the funds sources. Public values largely determinewhether the government procurement performance really fully reflected, theconstruction and realization of the public value of government procurement constitutesa path dependence to enhance the level of government procurement performancemanagement, and a direct impact on the direction of government procurementperformance management.At present, China is in an important historical node, the reform has entered acrucial stage and deep water areas, a decisive phase of building a moderately prosperoussociety. Economic globalization, the globalization of information, domestic andinternational trade environment and rules challenge enormously on the concepts,systems, procedures and other aspects of government procurement performancemanagement. In this changing environment, market allocation of resources play adecisive role, the government’s dominant position has been weakened, and thelegitimate profit-driven individuals, to achieve self-worth, but also increased conflictwith public values. Government procurement performance management should not only reflect public values, correcting the traditional performance management efficiencydominant values, return to government action’s "public" nature and center, but alsoreflects the economy itself, therefore, the innovation of government procurementperformance management, the establishment of public value as the theoretical basis ofthe government procurement performance management, reflecting the dual needs oftheory and practice.Based on the literature review of the researches and studies on governmentprocurement performance management, combing the theoretical basis of publicadministration, management, finance, and following the Marxist methodology, inaccordance with the logical thinking of ‘theoretical basis--reality--analysis--experience--innovative thinking’, integrated the use of Marxist dialectical materialism,comparative analysis, logical analysis, value chain analysis, collaborative managementtheory, seeing recent government procurement performance management as the startingpoint, starting from the analysis of public value of government procurement,conducting in-depth analysis of the current status and the causes of governmentprocurement performance management, on the basis of analyzing the important role ofpublic values on government procurement performance management, demonstrate thatthe value of government procurement performance management was born among thepublic value, the allocation of resources, the distribution of goods, the adjustment ofinterests and so on of government procurement should be subject to public value for thepurpose and destination. The ultimate point of the public value based on to governmentprocurement performance management is to create more public value for the public, notjust pay attention to the completion of the government procurement tasks and the simpleimprovements on methods and techniques.This paper, there has been a detailed analysis of the basic issues, the specificstructure, morphology of reality and the general ideas of government procurement performance management based on public values, a design of the theoretical frameworkof public value based performance management for government procurement: From thereform of the budget system for government procurement to provide reasonableoperating platform; improve organizational model for a fair competitive environment ofgovernment procurement; optimize process design to provide a clear framework forgovernment procurement set; strengthening oversight mechanisms to provide effectivepower constraints for government procurement; establish collaborative mechanisms forgovernment procurement organizations to provide smooth coordination; promoteinformation technology for government procurement to provide adequate technicalreserves; setting evaluation indicators to provide operational guidelines for standardizedperformance evaluation. This paper offers reform and innovative ideas to governmentprocurement performance management based on public value from the above sevenaspects.更多还原