我国政府投资项目管理的制度变迁

Institutional transformation of government project management in China

我国投入了大量财政资金进行基础设施建设,但政府投资项目管理中却存在比较严重的超支、质量和腐败问题,这与管理制度不健全有很大关系。我国政府投资项目管理模式随经济体制改革经历了一个复杂的变迁过程,可被分为三个阶段:在计划经济阶段主要采用自建模式、国有企业模式和工程指挥部模式,体制转轨阶段出现了项目法人制,市场经济初期出现了政府采购模式、代建制和私人融资模式。这些模式的运作机理各不相同,适用的项目类型和管理效果也有显著差异。对这些模式的比较分析表明,政府投资项目管理模式改革应遵循资金来源合理、政府职能合理、采购透明、节约管理成本、积累管理经验、制约腐败六项原则。随着市场经济体制的不断完善,应允许代建制、政府采购模式、私人融资模式、项目法人制等共存,并应根据项目具体情况合理选择管理模式。

The Chinese government has made heavy expenditure on infrastructure and other public works. However, the current performance of government projects is unsatisfying because of cost overrun, poor quality and corruption. As one of the significant reasons, the institutional arrangement of government project management is deficient and needs to be ameliorated. In this study, the institutional transformation process is divided to three phases. In the Planned-Economy Period, the Self-Building Method, the State-Owned Enterprise Method and the Project Headquarters Method were usually used in government project management; in the Systematic Transformation Period, the Project Cooperation Method was brought out; and in the Early Market Period, the Government Procurement Method, the Agent Construction Method and the Private Financing Method were innovated. Based on a comparison of these methods, six basic principles were refined for institutional amelioration of government project management, i.e., effective funding source, proper government function, procurement transparency, lower management cost, gathering management experience and restraining corruption. To improve the performance of government projects, different management methods should be rightfully chosen and related institutional arrangement should be ameliorated.