政府绩效评估的政策悖论与执行控制——一个多层治理的分析框架

Paradox and Implementation Control of Government Performance Evaluation——An Analysis Framework of Multi-level Governance

运用多层治理理论分析政府绩效评估的组织结构与政策体系,发现绩效评估被裹挟在府际科层关系与多层次政策网络之中,并以纵向与横向两种运行方式相互作用。一方面,评估政策制定与执行体现为纵向政府层级的科层控制和横向部门的政策分割;另一方面,多层次政策网络彰显了多属性的政策系统和跨层次的政策需求。政府绩效评估多层治理的嵌入过程存在多层评估系统与科层运作的结构失配、制度供给与绩效需求的系统张力、政策系统与技术标准的匹配困境等三重悖论。因此,要对多属性的政策系统进行分类,设计跨层次的评估政策体系,满足政府、社会与公众的多元绩效需求。

Using the multi-level governance theory to analyze the organizational structure and policy system of government performance evaluation,it is found that performance evaluation is trapped in the inter governmental bureaucratic relationship and multi-level policy network,and interacts with each other in vertical and horizontal operation modes.On the one hand,the formulation and implementation of evaluation policies are reflected as the bureaucratic control of the vertical government level and policy segmentation of the horizontal departments,on the other hand,the multi-level policy network highlights the multi attribute policy system and cross level policy needs.There are three paradoxes in the embedding process of multi-level governance of government performance evaluation,such as the mismatch between multi-level evaluation system and bureaucratic operation,the systematic tension between system supply and performance demand,and the matching problem between policy system and technical standards.Therefore,it is necessary to classify the multi attribute policy system and design a cross level evaluation policy system to meet the diversified performance needs of the government,society and the public.