公共项目绩效损失测度及治理:一个案例研究

The Measurement and Governance of the Loss of Performance in Public Project: A Case Study

政府绩效评估的核心目的是改进绩效。政府绩效不仅可以通过绩效评估的结果来测度,也可以从绩效损失的角度进行审视,这两种视角代表着绩效改进的不同逻辑。在以公共价值为基础的政府绩效治理理论下,政府绩效损失被用于描述绩效生产过程中由于管理不善、价值偏离或冲突而引起的绩效减少。本文从现有文献出发,阐述了政府绩效损失的内涵演变,从公共价值层面和管理层面界定了第I类和第II类绩效损失,在价值链视角下构建了公共项目绩效损失的测度框架,以J县政府与某非营利组织等合作建设移民扶贫新村项目为案例,测度了公共项目的绩效损失,并描述了绩效损失的分布。本文从绩效改进的视角对该公共项目绩效损失治理提出了具体的政策建议,包括控制产出环节的绩效损失,提升扶贫项目的可持续发展能力;创新管理机制,发挥项目治理网络的绩效领导功能等。最后,本文提出了该领域未来可能的研究问题。

The core aim of performance evaluation is to improve performance. The improvement of performance not only could be measured by results, but also could be viewed from the perspective of the loss of performance. These two perspectives represent different logic of improving performance. Under the Public Value-based Government Performance Governance theory, the loss of performance was used to depict the decrease of performance due to the bad management and the deviation and conflicts of values. Based on the current literature, this article illustrates the evolution of the connotation of the loss of performance and defines the extension of the loss of performance from value and management perspective. The measuring framework of the loss of performance in public projects is constructed under the viewpoint of value chain and the framework is implemented in an anti-poverty project co-produced by J county level government in Gansu Province and a non-governmental organization. The loss of performance of the public project is measured and the distribution of the loss of performance is described as well. Lastly, policy suggestions of governing the loss of performance in public projects are proposed from the perspective of improving performance including controlling the performance loss in the output stage to improve the sustainability of the poverty alleviation project, and innovating the management mechanism to insure the performance leadership function of the governance network in the project. The future questions of this research area are also proposed in this article.