基于网络治理的城市定点类公共服务绩效提升机制研究——以公交服务为例

China's urban public service is facing with three kinds of predicaments, which are the unequal distribution among different social class, the uneven distribution in different geographical space and the unbalance distribution in different public service structures. These predicaments made the urban public service performance low. To improve it, this research tries to take urban fixed-point public service as the object of study, and use urban public bus service as the case study. And it proposes to use the Fuzzy-Set/Qualitative Comparative Analysis (fs/QCA) and Simultaneous Equations as the methods. The main research contents include three parts as follows. Firstly, it defines the public service performance in terms of three dimensions which are input performance, production performance and allocation performance. Then it analyzes the performance influence factors based on governance theory. Secondly, it adopts the fs/QCA method to develop a modeling framework for the analysis the relationships between governance and performance. This illustrates how governance can act on performance. Thirdly, in order to suggest a performance improvement mechanism policy, it takes the public bus service as the case to test the above theories. This research connects the relations between public service network governance theory and performance management theory, which is a breakthrough in the traditional analysis pattern which focus on the separate research. And it can provide support to carry out the 12th Five-Year Plan for National System of Basic Public Services.

当前我国城市公共服务面临着阶层分配差异大、空间分布不均衡和结构配置失衡三层困境，导致公共服务绩效不高，为提升绩效，本研究以城市定点类公共服务为研究对象，并以城市公交服务为个案，主张采用模糊定性比较分析和联立方程组等方法实证探讨定点类公共服务绩效提升机制。拟研究的主要内容包括：①针对定点类公共服务的三层困境，将其绩效拓展为投入绩效、生产绩效和配置绩效三个层面，并挖掘影响绩效提升的治理层面影响因素；②通过模糊定性比较分析方法，建立上述治理因素与绩效之间的理论模型框架，明确二者之间的逻辑关系，以揭示治理因素对绩效的作用机理；③以城市公交服务为案例进行实证检验，阐明提升城市定点类公共服务三个层面绩效的协调治理机制。该研究连接了公共服务网络治理制度安排与绩效的关系，突破了以往二者相互分离的研究模式，可为国家基本公共服务体系"十二五"规划的实施提供决策支持。

城市定点类公共服务供给是改善民生的重大任务，然而当前我国城市公共服务绩效状况与公众对其高质量的需求不匹配，具体表现为三种现实困境：第一，中低收入阶层面临看病难、上学难、住房难、出行难等煎熬；第二，郊区公共服务设施不健全、覆盖率不足；第三，公众对住房保障、医疗卫生、公共交通等高度关注，但满意度不高。上述三方面现实困境对应着三个理论上问题，一是公共服务在阶层间分配的差异，二是公共服务在空间上供给的不均衡，三是公共服务结构配置上的失衡。为解决上述研究问题，本项目做了如下四方面的工作：（1）建立政府与企业、政府与社会组织、社会组织与企业等多元主体合作的供给模式，设立民生资金投入保障机制、生产机制和分配机制；（2）构建公共服务公众满意度模型，发现在公共服务的硬件投入、软件投入等方面继续加大财政投入力度，并认为公众参与有利于公共服务满意度的提升；（3）研究发现治理是有利于公共服务效率的提升，尤其是采用市场竞争的方式来供给公共服务；（4）构建了公共服务公平性评价模型，以及探索了其影响因素机理，发现公共政策决策的透明度有利于服务效果的实现，以及有利于对社会的正向影响。上述研究结果，可以为公共服务的政策制定、公共服务的供给、公共服务的分配提供相关政策启示。