政府购买公共服务有效性及其影响因素研究——基于153个政府购买公共服务案例的探索
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摘要
自新公共管理运动兴起,政府购买公共服务日益成为世界范围内政府提供公共服务的基本手段,但不断涌现的"逆合同外包"现象也证明了引入市场机制提供公共服务的复杂性。为此,基于我国各地政府与第三方机构协力评价且已结项的公共服务购买案例,在获取有效性评价数据基础上,实证检验我国公共服务购买有效性及其影响因素。研究发现,公共服务购买一味追求"纯粹的市场"、"纯粹的社会"的做法,未必有利于公共服务购买有效性的提升;政府购买仅将公共服务"生产"社会化,却未将政府"供给责任社会化";公共服务购买应考虑合适领域,选择"富矿区"展开购买活动,对于一购买就失败的"贫矿区"要敬而远之。本研究也回应了"逆合同外包"现象,为转型期"中国式公共服务购买"提供了现实参照和一种理论阐释。
Since the spring-up of the new public management movement, public service outsourcing has increasingly become the basic mean for government to provide public services worldwide. However, the emerging phenomenon of "reverse contracting" or "contracting back in" proves the complexity of introducing market mechanisms to provide public services. In this paper, the effectiveness of buying public services in China and its influencing factors are empirically tested on the basis of the existing evaluation data, which derives from the cases of buying public services that have been evaluated jointly by the government and the third-party institutions and have been concluded in reality. Results indicate that the blind pursuit of "pure market" and "pure society" in the purchase of public services may not be effective. Government purchase only socializes the "production" of public services, but not the "supply responsibility". Government must consider appropriate fields and choose the "rich mining area" in the purchase of public services, while the "poor mining area" should be avoided if it always fails. The main value of this paper lies in responding to the phenomenon of "reverse contracting" and providing realistic reference and theoretical explanation for "Chinese public service purchase" in the transitional period.
Since the spring-up of the new public management movement, public service outsourcing has increasingly become the basic mean for government to provide public services worldwide. However, the emerging phenomenon of "reverse contracting" or "contracting back in" proves the complexity of introducing market mechanisms to provide public services. In this paper, the effectiveness of buying public services in China and its influencing factors are empirically tested on the basis of the existing evaluation data, which derives from the cases of buying public services that have been evaluated jointly by the government and the third-party institutions and have been concluded in reality. Results indicate that the blind pursuit of "pure market" and "pure society" in the purchase of public services may not be effective. Government purchase only socializes the "production" of public services, but not the "supply responsibility". Government must consider appropriate fields and choose the "rich mining area" in the purchase of public services, while the "poor mining area" should be avoided if it always fails. The main value of this paper lies in responding to the phenomenon of "reverse contracting" and providing realistic reference and theoretical explanation for "Chinese public service purchase" in the transitional period.
引文
[1]H EFETZ A.The Communicative Policy Maker Revisited:Public Administration in a Twenty-First Century CulturalChoice Framework[J].Local Government Studies,2016,42(4):527-535.
[2]HEFETZ A,WARNER M.Privatization and its Reverse:Explaining the Dynamics of the Government Contracting Process[J].Journal of Public Administration Research and Theory,2004,14(2):171-190.
[3]GARRONE P,MARZANO R.Why do Local Governments Resist Contracting out?[J].Urban Affairs Review,2015,51(5):616-648.
[4]DENHARDT J V,DENHARDT R B.The New Public Service Revisited[J].Public Administration Review,2015,75(5):664-672.
[5]DAHLSTROM C,NISTOTSKAYA M,TYRBERG M.Outsourcing,Bureaucratic Personnel Quality and Citizen Satisfaction with Public Services[J].Public Administration,2018,96(1):218-233.
[6]BEL G,FAGEDA X.What have We Learned from the Last Three Decades of Empirical Studies on Factors Driving Local Privatisation?[J].Local Government Studies,2017,43(4):503-511.
[7]BOARDMAN A E,VINING A R,WEIMER D L.The LongRun Effects of Privatization on Productivity:Evidence from Canada[J].Journal of Policy Modeling,2016,38(6):1001-1017.
[8]BRUNJES B M,KELLOUGH J E.Representative Bureaucracy and Government Contracting:A Further Examination of Evidence from Federal Agencies[J].Journal of Public Administration Research and Theory,2018,28(4):519-534.
[9]HABERMAS J.Communication and the Evolution of Society[M].Hoboken:John Wiley&Sons,2015.
[10]李晨行,史普原.科层与市场之间:政府购买服务项目中的复合治理---基于信息模糊视角的组织分析[J].公共管理学报,2019,16(1):29-40.
[11]PETERSEN O H,HOULBERG K,CHRISTENSEN L R.Contracting out Local Services:A Tale of Technical and Social Services[J].Public Administration Review,2015,75(4):560-570.
[12]WANG H,MU R,LIU S.The Effects of Privatisation on the Equity of Public Services:Evidence from China[J].Policy&Politics,2018,46(3):427-443.
[13]BEL G,GRADUS R.Privatisation,Contracting-Out and Inter-Municipal Cooperation:New Developments in Local Public Service Delivery[J].Local Government Studies,2018,44(1):11-21.
[14]尚虎平.我国政府绩效评估的总体性问题与应对策略[J].政治学研究,2017(4):60-70.
[15]尚虎平.合理配置政治监督评估与“内控评估”的持续探索---中国40年政府绩效评估体制改革的反思与进路[J].管理世界,2018,34(10):105-117.
[16]孙涛,张怡梦.从转变政府职能到绩效导向的服务型政府--基于改革开放以来机构改革文本的分析[J].南开学报(哲学社会科学版),2018(6):1-10.
[17]李健,陈淑娟.如何提升非营利组织与企业合作绩效?[J].公共管理学报,2017,14(2):71-80.
[18]KIRBY A,PINCH S,KNOX P.Public Service Provision and Urban Development[M].London:Routledge,2017.
[19][美]E·S·萨瓦斯.民营化与公私部门的伙伴关系[M].周志忍,等译.北京:中国人民大学出版社,2002.
[20]搜狐网.拨云见日话“运营”---如何理解PPP项目中的运营内容?[EB/OL].(2018-01-15)[2018-10-08].https://www.sohu.com/a/216815585_466879.
[21]王绍光.中国公共政策议程设置的模式[J].中国社会科学,2006(5):87-100.
[22]陈振明,李德国.基本公共服务的均等化与有效供给---基于福建省的思考[J].中国行政管理,2011(1):47-52.
[23]郁建兴.中国的公共服务体系:发展历程,社会政策与体制机制[J].学术月刊,2011(3):5-17.
[24]LóPEZ-HERNáNDEZ A M,ZAFRA-GóMEZ J L,PLATA-DíAZ A M,et al.Modeling Fiscal Stress and Contracting out in Local Government:The Influence of Time,Financial Condition,and the Great Recession[J].The American Review of Public Administration,2018,48(6):565-583.
[25]竺乾威,朱春奎.社会组织视角下的政府购买公共服务[M].北京:中国社会科学出版社,2016.
(1)虽然当前我国政府购买服务情况复杂,其绩效评估和财务审计还较为薄弱,甚至一些地方政府都不太在意购买服务是否有效;但对于那些已经展开了绩效评估、效果评估的购买项目来说,我们认为既然展开评估,其隐含前提就是重视购买公共服务的效能,否则便不应该又增加一笔财政支出展开此项工作。就此而言,我们以现有展开了有效性评估的项目作为研究对象,是具有一定意义的。另外,在政府信息公开依然不理想的今天,这些评估后公开的评估结果数据,也是当前廓清政府购买服务黑箱的非常稀缺的数据,以其为凭借探索购买服务的有效性,也有着深层挖掘已有政府公开信息的价值。
[2]HEFETZ A,WARNER M.Privatization and its Reverse:Explaining the Dynamics of the Government Contracting Process[J].Journal of Public Administration Research and Theory,2004,14(2):171-190.
[3]GARRONE P,MARZANO R.Why do Local Governments Resist Contracting out?[J].Urban Affairs Review,2015,51(5):616-648.
[4]DENHARDT J V,DENHARDT R B.The New Public Service Revisited[J].Public Administration Review,2015,75(5):664-672.
[5]DAHLSTROM C,NISTOTSKAYA M,TYRBERG M.Outsourcing,Bureaucratic Personnel Quality and Citizen Satisfaction with Public Services[J].Public Administration,2018,96(1):218-233.
[6]BEL G,FAGEDA X.What have We Learned from the Last Three Decades of Empirical Studies on Factors Driving Local Privatisation?[J].Local Government Studies,2017,43(4):503-511.
[7]BOARDMAN A E,VINING A R,WEIMER D L.The LongRun Effects of Privatization on Productivity:Evidence from Canada[J].Journal of Policy Modeling,2016,38(6):1001-1017.
[8]BRUNJES B M,KELLOUGH J E.Representative Bureaucracy and Government Contracting:A Further Examination of Evidence from Federal Agencies[J].Journal of Public Administration Research and Theory,2018,28(4):519-534.
[9]HABERMAS J.Communication and the Evolution of Society[M].Hoboken:John Wiley&Sons,2015.
[10]李晨行,史普原.科层与市场之间:政府购买服务项目中的复合治理---基于信息模糊视角的组织分析[J].公共管理学报,2019,16(1):29-40.
[11]PETERSEN O H,HOULBERG K,CHRISTENSEN L R.Contracting out Local Services:A Tale of Technical and Social Services[J].Public Administration Review,2015,75(4):560-570.
[12]WANG H,MU R,LIU S.The Effects of Privatisation on the Equity of Public Services:Evidence from China[J].Policy&Politics,2018,46(3):427-443.
[13]BEL G,GRADUS R.Privatisation,Contracting-Out and Inter-Municipal Cooperation:New Developments in Local Public Service Delivery[J].Local Government Studies,2018,44(1):11-21.
[14]尚虎平.我国政府绩效评估的总体性问题与应对策略[J].政治学研究,2017(4):60-70.
[15]尚虎平.合理配置政治监督评估与“内控评估”的持续探索---中国40年政府绩效评估体制改革的反思与进路[J].管理世界,2018,34(10):105-117.
[16]孙涛,张怡梦.从转变政府职能到绩效导向的服务型政府--基于改革开放以来机构改革文本的分析[J].南开学报(哲学社会科学版),2018(6):1-10.
[17]李健,陈淑娟.如何提升非营利组织与企业合作绩效?[J].公共管理学报,2017,14(2):71-80.
[18]KIRBY A,PINCH S,KNOX P.Public Service Provision and Urban Development[M].London:Routledge,2017.
[19][美]E·S·萨瓦斯.民营化与公私部门的伙伴关系[M].周志忍,等译.北京:中国人民大学出版社,2002.
[20]搜狐网.拨云见日话“运营”---如何理解PPP项目中的运营内容?[EB/OL].(2018-01-15)[2018-10-08].https://www.sohu.com/a/216815585_466879.
[21]王绍光.中国公共政策议程设置的模式[J].中国社会科学,2006(5):87-100.
[22]陈振明,李德国.基本公共服务的均等化与有效供给---基于福建省的思考[J].中国行政管理,2011(1):47-52.
[23]郁建兴.中国的公共服务体系:发展历程,社会政策与体制机制[J].学术月刊,2011(3):5-17.
[24]LóPEZ-HERNáNDEZ A M,ZAFRA-GóMEZ J L,PLATA-DíAZ A M,et al.Modeling Fiscal Stress and Contracting out in Local Government:The Influence of Time,Financial Condition,and the Great Recession[J].The American Review of Public Administration,2018,48(6):565-583.
[25]竺乾威,朱春奎.社会组织视角下的政府购买公共服务[M].北京:中国社会科学出版社,2016.
(1)虽然当前我国政府购买服务情况复杂,其绩效评估和财务审计还较为薄弱,甚至一些地方政府都不太在意购买服务是否有效;但对于那些已经展开了绩效评估、效果评估的购买项目来说,我们认为既然展开评估,其隐含前提就是重视购买公共服务的效能,否则便不应该又增加一笔财政支出展开此项工作。就此而言,我们以现有展开了有效性评估的项目作为研究对象,是具有一定意义的。另外,在政府信息公开依然不理想的今天,这些评估后公开的评估结果数据,也是当前廓清政府购买服务黑箱的非常稀缺的数据,以其为凭借探索购买服务的有效性,也有着深层挖掘已有政府公开信息的价值。
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