谁是“最佳”的价值判断者:区县政府绩效评价机制的利益相关主体分析

Who is the Best Evaluator:An Analysis of the Stakeholders in Borough-county Level Government Performance Evaluation

政府组织绩效评价要解决的首要问题之一是评价机制,即如何才能对绩效进行尽可能客观的价值判断。本文从利益相关主体理论入手,围绕“谁是最佳的评价者”针对区县政府绩效的评价主体进行了分析,给出了评价主体应该遵循的原则性规范,构建了最佳评价者的选择模型。分析表明,公众作为区县以下级政府的公共服务接受者,和当地政府的利益相关性强,信息渠道不畅、评价成本高昂,存在评价偏好;政府组织存在自我认同倾向,尽管信息便利但人为增加的评价成本难以控制;人大组织较公众更为理性,但由于评价独立性较差而难以准确评价;学术研究组织相对前几种评价主体而言,准确性占优,效用性强于公众,成本低于公众和政府,可以算是相对而言的“最佳”评价主体。据此,可以进一步理解影响政府绩效评价客观性的诸多因素以及不同的评价机制,为提升现实绩效评价的客观性打下基础。

Aiming at the question of 'who is the best evaluator,' this paper makes a stakeholder theory based analysis of the evaluator of the government performance, and then offers a principled norm to be followed by the evaluators and a model of choosing the best evaluator. By analyzing the performance evaluation of particular borough-county level government organization, which is based on three rules:accuracy, capability and cost, the paper shows that as a stakeholder to local government, the public is not the best evaluator because they may have such disadvantages as information inadequacy, high cost of evaluation and subjective bias. By contrast, local governments have access to information, but it′s hard for them to control the man-made increase of evaluation cost. As for the people′s committees, they are more rational than the public, but it′s difficult for them to conduct an accurate evaluation. Comparing with the mentioned evaluators, academic organization, though not a perfect evaluator, has more advantages in evaluating the performance of local government.