宋斌教授在南非出席第九届公共管理国际会议并宣讲论文（第312期）
院长宋斌教授于2013年10月31日--11月2日在南非开普半岛科技大学出席第九届公共管理国际会议，并宣讲题为Research on establishment of Public Administration Performance Evaluation system of industrial park的论文，该文已公开出版，同时，该文被ISTP\ISSTP国际权威检索系统.(全文如下)
Research on establishment of Public Administration Performance Evaluation system of industrial park
1. SONG Bin 2.LIU Yi 3.LI Jiang-Bo
School of Public Administration, China University of Geosciences, Wuhan, P.R. China, 430074
Abstract From Chairman Mao’s “development is the general trend”, Chairman Deng’s “development is all that matters”, Chairman Jiang’s “development is first mission” to Chairman Hu’s “scientific outlooking on development”, focusing on development is both the lineage and time-progressing theory that our Communist party’s all leaders has maintained, it gives new time-meaning to Socialism construction theory and has become our guiding ideology. According to “The interim regulation for working evaluation of party and government leading cadres”, working evaluation on leading cadres mainly contains morality, ability, diligence, working accomplishment and incorruptness these five aspects, and working accomplishment(political accomplishment) is the most important evaluated factor.
Key words: Industrial Park, Public Administration, Performance evaluation, System
1 It is urgent to establish industrial park performance evaluation system
The communist party put forward insisting people-oriented view, establishing the overall,coordinated, sustainable development outlooking, promoting the comprehensive development of economic society and the public.For the whole time,it is difficult to evaluate the political accomplishment precisely,so, evaluation on that usually goes to accessible economic growth level.So, it is urgent to build the industrial park performance evaluation system under the guidance of scientific outlooking on development.
Industrial park performance evaluation system under scientific outlooking on development has some disadvantages, it is mainly represented in the following four ways: firstly, It lacks sustainable evaluation system-’GDP is the only thing that matters’. Secondly, It lacks people-oriented evaluation system ,which contains: firstly, on the purpose of evaluation, it lacks the principle of who is oriented, and whether people support and whether they need it are the final standards of the evaluation of the political accomplishment. Secondly, on the subject of evaluation, the public don’t get involved in widely, the closed, subjective evaluation that focuses on internal assessment brings lots of disadvantages, such as believing partially that they have heard, incomplete informations and so on. thirdly ,On the content of evaluation, it lacks the overall, systematical evaluation mechanism which must contain GDP, Green GDP and Human and Literature GDP. At last , on the senses of evaluation , it lacks the sustainable thought, for example, inner Mongolia Alashan flag did not make scientific prove, rushed for success and profit, did not consider the consequences and cost either, giving 40 000 acres’land to an enterprise freely, trying to change the dessert to green area, but 2100 acres of the land turned out to be dessert.
In a word, economic growth does not equal economic development. There were some once famous economist who bragged economic growth in western countries, then, why did America was confronted with the serious depression and stagflation in the 1930s? Agentina ,Brazil, Mexico and so on are the typical reversed countries of the modernized mode that have economic growth but no economic development in the past 50 years.
So, the last 1980s was called ‘lost decade’, while the 90s was called ‘crisis decade’.
Above all, the essence of economic growth is the subject studying total quantity and quantity, while economic development is the subject studying structure and quality. So, after 20 years’s hard working and exploration, on 16th plenary session, China put forward the Chinese featured scientific outlooking on development which struck the whole world and the thought of establishing industrial park performance evaluation system.
2 Establishing industrial park performance evaluation system
2.1 The core part of industrial park performance evaluation system
The core part of industrial park performance evaluation system is the combination of GDP, Green GDP and Human and Literature GDP. It can be divided into five system: society system, economy system, population system, human system and ecological system.
2.1.1 GDP means the value of all products and labor service of all producing unit has made in a country or an area in a given period. In the past, GDP was the core standard of evaluation for industrial park political performance, and it leaded to the following consequences: some leaders ignored the truth of economy society and the tolerance of resources and environment when seeking for political performance in their ruling period, putting forward some unpractical standards, plans and ‘image projects’, which not only was a waste of money and labor service but also damage to the ecological system in a great extent. Some leaders just sook for the speeding growth of GDP which leaded to the digression of GDP-false growth, abrupt growth in a short time or unbalanced structure growth.
2.1.2 Green GDP means the gross domestic products that have removed the cost of environment and resources. In essence Green GDP represents the net positive effect of the national economic growth. Green GDP help people see the negative effect of economic activities that brings to the ecological environment and natural resources in a further degree by monetizing the cost of resources and economic loss by polluting the environment and ecological deterioration, so as to make people cherish resources and protecting the environment and take the road of sustainable development self-consciously while seeking for economic growth.
2.1.3 Human and Literal GDP is the agregation of history culture, traditional culture and modern culture. It is the standard of a nation, a country or a region’s longtime wealth dedication and sedimentary deposits of sustainable Compatibilization, it consists inheritation and protection of history culture, traditional culture and so on ,it also consists the establishment and formation of modern culture.
In a word, economic growth is the growth of GDP, economic development is the growth of Green GDP, Human and Literal GDP etc... The emergent of Green GDP, Human and Literal GDP has overcome the disadvantages of GDP, suggests the internal discipline of economic growth and economic development.
2.2 core system of indusial park performance evaluation
Core system of industrial park performance evaluation is the institution that investigates, confirms, distinguishes the morality, ability, diligence, accomplishment, incorruptness condition of the evaluation subject and make evaluation of the subject on physical truth. Scientific reasonable arrangement of evaluation subject is the important factors which can assure the objectiveness, justice, accurateness of evaluation results.
2.2.1 Arrangement of stereo evaluation subject. This mainly focuses on expanding democracy foundation of evaluation subject, establishing all-round stereo evaluation core system. It includes: firstly, superior evaluation, which means making evaluation of the interior’s working results, ability, psychological factors and morality from the manager, leader’s perspective. Secondly, interior evaluation, which means making evaluation of the superiors’ ability and political accomplishment when communicating, cooperating with the superior while the interior are executing duties. Thirdly, peer evaluation, which means making mutual evaluation among co-workers, peer workers. Fourthly, self- evaluation, which means making evaluation of your personality, ability, morality by yourself. Fifthly, public evaluation, which means making evaluation of leaders by the public. Sixthly, assessment of evaluation team, which meas making assessment of evaluation subject by specific committee that is made up of all-level leaders and representatives of the public.
2.2.2 Score weight design of evaluation subject, which obey the rule of intensity of correlations. Leaders can get intense, loose correlations with all-round people while at work and life, some correlations are strong, some are loose, some are moderate, such as the correlation between leaders and non-leaders, direct interior and indirect interior. Then, it needs to distinguish score weight of different evaluation subject when making the rule. For example, according to the eighteenth regulation of Interim Measures of Baotou city County Government Leading Cadres Evaluation , for evaluation of county-level party and government cadres :Municipal Party and government cadres’ evaluation accounts for 5%, the Municipal People's Congress, CPPCC leadership’ evaluation accounts for 5%(the Municipal People's Congress, the CPPCC leadership evaluation accounts for 2%), other municipal leadership’ evaluation accounts for 10% ,cadres at county level (including Party committee, National People's Congress, government, Political Consultative Conference, Law Inspection and all county cadres, similarly hereinafter) evaluation accounted for 20%,zheng Keji cadres’ evaluation accounts for 25%, government cadres’ evaluation points accounts for 15%, representatives of NPC,CPPCC and the public accounts for 5%, evaluation team’s evaluation accounts for 15%.
2.3 Content system of industrial park performance evaluation
Content system of industrial park performance evaluation is a general term of the five first-class quotas that are morality, ability, diligence, accomplishment, incorruptness and the second-class as well as the third-class quotas that are derived from the scientific outlooking on development.
2.3.1 The ideological and political quality: ideological and political quality plays the basic and guiding role in the content system of industrial park performance evaluation. Second-class quotas that established under the guidance of scientific outlooking on development contain the concept of political position, theoretical level, morality quality, the public concept, and environment-protection.
2.3.2 Organizing and leading ability: scientific decision-making ability, problem-solving ability, creative ability, communicating and meditating ability, discovering the talented ability.
2.3.3 Working ethics: hard-working, realistic and pragmatic, democratic centralism.
2.3.4 Working accomplishment, which can be investigated from the following second and third class quotas: economic development, society development, sustainable development, political civilization construct.
2.3.5 Incorruptness and self-discipline: incorruptness and diligent as well as thrift.
2.3.6 Weight distribution of all-level quotas, after all quotas are settled down, we need to distribute weight to different level quotas. According to cadres evaluation spirit of the CCCPC’s ‘ having morality as well as talent,focusing on actual accomplishment’,we can divide the five first-class quotas into‘morality’and ‘talent’organically, morality, diligence, incorruptness belong to “morality”part,ability and accomplishment belong to “talent”part. Given that the total evaluation weight is ten, ‘morality’part’s total weight can be four, ‘talent’part can be 6. The five first class quotas can be given the weight of 2:1:1:5:1 respectively. Adopting micrometer measuring method, then morality accounts for 200,ability accounts for 100,diligence accounts for 100,accomplishment accounts for 500,incorruptness accounts for 100.
2.3.7 Confirmation of evaluation order of all-level quotas. When comes to specific quota’s evaluation order, excellent, good, medium, pass ,poor can be used to measure it, and can be given evaluation scores of 5,4,3,2,1 respectively .
Table 1: three indicators of performance evaluation score set
|
One class index |
Two level index |
Three level index |
Assessment grade/Score |
|
A |
B |
C |
D |
E |
Work performance |
Economic development
(150 points) |
GDP |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
Revenue |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
Investment and exports |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
Proportion of non-agricultural industries |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
Industrial economic benefits |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
The social investment in fixed assets and growth rate |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
Disposable income of urban residents |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
|
The per capita net income of farmers |
18.75 |
15 |
11.25 |
7.5 |
3.75 |
Social development
(125 points) |
Investment in science and technology three funds |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
|
The development of Education |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
|
Medical and health work |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
|
Culture and sports |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
|
Employment and social security |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
|
Public Security |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
|
The Gene coefficient |
18 |
14.4 |
9.8 |
7.2 |
3.6 |
Social development
(125 points) |
The growth of population and family planning rate |
31.25 |
25 |
18.75 |
12.5 |
6.25 |
|
The protection of the ecological environment |
31.25 |
25 |
18.75 |
12.5 |
6.25 |
|
Land and resources utilization |
31.25 |
25 |
18.75 |
12.5 |
6.25 |
|
The environmental costs of economic development |
31.25 |
25 |
18.75 |
12.5 |
6.25 |
The construction of political civilization
(100 points) |
The building of the contingent of cadres |
25 |
20 |
15 |
10 |
5 |
|
Basic level organization construction |
25 |
20 |
15 |
10 |
5 |
|
The construction of democracy and legal system |
25 |
20 |
15 |
10 |
5 |
|
The mass work of United Front |
25 |
20 |
15 |
10 |
5 |
2.4the evaluating methods and systems of industrial park performance
The evaluation content system of industrial park performance refers to the use of a combination of qualitative and quantitative evaluation of the object, the sum and quantitative evaluation method.
2.4.1 Scale and quality evaluation, refers to put some numbers assigned to a hand to see the difference between the number of, and different quantity with different weights, which made a summary of the information. Scale in the reflected by strong accuracy of psychological characteristics, personality, quality evaluation. Such as are commonly used Wechsler Adult Intelligence Scale (WAIS), raven standard reasoning test (SPM), Cattell 16 Personality Factor Questionnaire (16PF), Eysenck Personality Questionnaire (EPQ), adult volume gas quality table etc.. Scale and the quality evaluation can be used to evaluate the leading cadres, can condition.
2.4.2 The Balanced Scorecard (BSC), balanced scorecard (Balanced Scorecard, referred to as BSC), refers to the BSC is the integral card financial and non-financial a comprehensive evaluation of the company's strategic management performance. The core idea of BSC is to show the strategic trajectory through the interaction between financial, customer, internal processes, learning and growth four aspects index, achieve the performance appraisal implementation strategy -- -- modified objective performance improvement and strategic. Balance score card in every indicator is part of a series of causal relationship, through which they related to organizational goals and strategies together. At the same time, also in the quantitative evaluation, objective evaluation and subjective evaluation, index between forward and backward control, organization of the short-term growth and long-term development, the organization of various stakeholder expectations between to "balance" is done on the basis of performance management and strategy implementation process. In the "1000 corporate wealth" magazine published by the world before, 70% of the companies adopted the balanced scorecard system, it is our country most of the enterprises and gradually began to implement. Industrial Park can be used BSC method for enterprises, government performance evaluation.
2.4.3 KPI method, KPI is Key Performance Indicator, known as the key performance indicators. KPI is a quantitative form strategy. KPI organized KPI, Department KPI, post KPI.
The establishment of KPI system is to determine the index decomposition method, to solve the problem of how to organize goal decomposition into performance indicators operational problems. There are generally four kinds of ways to set up an organization KPI system: Based on the organization structure decomposition and the establishment of the KPI system; based on the decomposition and the establishment of the KPI system internal process; on the basis of the Balanced Scorecard in KPI system; on the basis of benchmarking to establish KPI system. (As shown in the following table.):
Table 2: Hubei talent development center (KPI system based on organization structure decomposition)
|
Department |
Key performance areas (KPA) |
The key index name |
The Department of comprehensive |
Cost index |
Procurement of office supplies price index |
|
Execution index |
Staff quality of work life, staff turnover rate |
Agency Department |
Customer service index |
The number of agency personnel files, the complaint rate, rate of return |
The recruitment section |
Customer service index |
The job fair, held the number of recruitment, recruitment scale will reach intent proportion, recruitment cost benefit ratio |
Network Department |
Quality index |
Internal update speed, network within the network content evaluation |
In the design of the "Morality, Ability, Industrious, Achievements, Honest" 5 first level indicators, 19 level two indexes system, industrial park by KPI evaluation method, based on the organization structure and internal process decomposition KPI targets, and to assist in the evaluation method of CPI, the realization of Industrial Park evaluation.
2.4.4 Democratic appraisal method. "Interim Provisions" party and government leading cadres assessment method is adopted to assess the provisions of the leading cadres of democratic evaluation. Such as the national authorities network administration of Beijing municipal public inspection of Nanjing, Zhuhai City, to carry out the "million people on the government" activities, Shenzhen city "business review government" etc.. The opinion polls including polls and democratic appraisal.
2.5 Industrial Park appraisal result application system
2.5.1 Industrial Park performance evaluation results to determine, at present, the cadre evaluation results are divided into excellent, qualified, basic qualified, unqualified four grades, compared to foreign civil servant assessment evaluation grades and order, order less. This makes the most of the leading cadres of the examination results are concentrated in the intermediate level, rewards and punishments Chuzhi function not manifest, which greatly weakened the incentive effect evaluation mechanism. Learn from foreign experience, the assessment results identified as gifted (850~1000), and (700~850), (550~700), flat (400~550), poor (400 points) five times, and shall be expressed by A, B, C, D, E.
Based on the evaluation scores, should be patient and award for excellent fittest principle, advantages, good, bad, flat, the number of the ratio of five grades can be divided into 15%, 40%, 38%, 5%, 2%.
2.5.2 The use of industrial park performance evaluation results, evaluation of leading cadres of the only means, effective use of the evaluation result is objective. There is little association assessment results and other management activities in practice, the evaluation results should also must become the main basis for rewards and punishments, elevating industrial park management activities: one is the selection basis; two is the management and supervision; three is the education and guidance.
2.6 System performance evaluation of Industrial Park
2.6.1 The establishment of three GDP accounting mechanism, economic growth is the increase of GDP, the economic development is to increase the green and human GDP. Only the green and human GDP and GDP together as a civil servant evaluation index, the establishment and perfection of the civil service performance evaluation index system to.
2.6.2The establishment of multiple evaluation mechanisms, including the establishment of government organization, social public, professional institutions, multiple evaluation is to establish and perfect the scientific industrial park performance evaluation system is important one annulus. At the same time, the establishment of performance evaluation mechanism for professional, the use of modern means of evaluation, the evaluation of professional, scientific.
2.6.3The result of performance evaluation and incentive mechanism is established and closely integrated, complete and scientific evaluation system in addition to index design science, evaluation procedures are also very important. We should change the internal assessment and superior to subordinate assessment as practice, assessment must listen to the opinions of the masses, the evaluation results to the public. At the same time, lifting the appointment and removal of assessment and incentives for one crucial.
We initially established the performance of Industrial Park under the guidance of scientific outlook on development achievements and the natural ecological environment coupling evaluation system. But the study focused on the construction of Industrial Park, the common convergence system and standard, and the industrial park's personality, such as different regions, different levels, different departments, different levels of Industrial Park, the duties, responsibilities and work content difference. This will be a concrete analysis and study.
References
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[5] Song Bin, Bao Jing. Study on the concept of [J]. public administration of local government performance evaluation of the scientific outlook on development, 2007 (6): 38-43
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