党的十九届四中全会报告提出，国家行政管理承担促进经济社会发展等一系列重大 职责。所有行政机关都需要做到为人民服务，同时还需要接受人民监督。积极推动行政 方式创新，积极推动行政决策、行政监督等体制的优化，积极完善政府机制创新，是建 设人民满意的人民政府的必然要求。乡镇人民政府作为我国基层政府，担负着农村行政 事务和社会管理工作，对发展农村经济、维护基层政权和实现社会和谐与稳定起着重要 的作用。积极推进服务型乡镇人民政府绩效管理机制创新是党全心全意为人民服务宗旨 的体现，是社会与时代发展的客观要求，是推进乡镇政府职能转变的重要途径，也是新 时期乡村振兴战略规划建设的重要构成与不竭动力。 论文以乡镇人民政府为研究对象，以政府绩效评估理论为基础，通过国内外文献检 索，分析了服务型乡镇人民政府绩效评估多元主体运作及其行为表现，探讨了绩效考核 机制的着力点以及创新发展与乡镇政府绩效管理方式转变的难点。以地方政府依法行政 为视角，通过问卷调查，构建了服务型乡镇人民政府多元化的评估主体及规范化的绩效 评估考核指标体系。分析了政府绩效评估体系制度安排短缺与建设困境。从推进绩效评 估民主化与制度化，加强政府绩效评估制度供给、加速政府绩效评估立法进程，加速政 府问责制度与结果运用制度建设四个方面提出了政府绩效评估制度的对策建议。以期为 新时期推动服务型乡镇人民政府机构改革、完善绩效考核评估制度提供参考。 关键词：服务型乡镇政府，绩效考核，绩效评估，对策建议II Abstract The report of the Fourth Plenary Session of the Nineteenth Central Committee of the Communist Party of China stated that the state administration has undertaken a series of important responsibilities including promoting economic and social development. All administrative agencies need to serve the people, and they also need to accept people's supervision. Actively promoting the innovation of administrative methods, actively promoting the optimization of administrative decision-making, administrative supervision and other systems, and actively improving the innovation of government mechanisms are inevitable requirements for building a people’s government that the people are satisfied with. The township people's government, as the grassroots government in my country, is responsible for rural administrative affairs and social management. It plays an important role in developing the rural economy, maintaining grassroots political power, and achieving social harmony and stability. Actively promoting the innovation of the performance management mechanism of the service-oriented township people's government is the embodiment of the party's purpose of serving the people wholeheartedly, the objective requirement of the development of the society and the times, the important way to promote the transformation of the functions of the township government, and the importance of the strategic planning of rural revitalization in the new period Composition and inexhaustible motivation. The thesis takes the township government as the research object, based on the government performance evaluation theory, and through domestic and foreign literature search, analyzes the operation and behavior of the multi-subject of the performance evaluation of the service-oriented township government, and discusses the focus and innovation of the performance evaluation mechanism. Difficulties in development and the transformation of township government performance management methods. From the perspective of local government administration according to law, through questionnaire surveys, a diversified evaluation subject and standardized performance evaluation index system for service-oriented township people's governments have been constructed. The shortage of government performance evaluation system institutional arrangements and the construction dilemma are analyzed. The countermeasures and suggestions of government performance evaluationIII system are put forward from four aspects: advancing the democratization and institutionalization of performance evaluation, strengthening government performance evaluation system supply, accelerating government performance evaluation legislation process, accelerating government accountability system and result application system construction. With a view to providing a reference for promoting the reform of service-oriented township people's government institutions and improving the performance evaluation system in the new period. Key words: Service-oriented township government，Performance appraisal，performance evaluation，Countermeasures and suggestionsIV 目录 第一章 绪论......................................................................................................................1 1.1 研究背景及意义 .................................................................................................1 1.1.1 研究背景 ..................................................................................................1 1.1.2 研究意义 ..................................................................................................1 1.2 国内外研究现状 .................................................................................................2 1.2.1 国外研究现状 ..........................................................................................2 1.2.2 国内研究现状 ..........................................................................................3 1.2.3 研究评述 ..................................................................................................5 1.3 研究方法和内容 .................................................................................................5 1.4 技术路线图 .........................................................................................................6 第二章 政府绩效评估主体体系及行为分析..................................................................8 2.1 政府绩效评估的内涵及其理论渊源 .................................................................8 2.1.1 政府绩效评估内涵 ..................................................................................8 2.1.2 政府绩效评估理论基础 ........................................................................10 2.1.3 绩效管理理论与政府绩效评估体系 .................................................... 11 2.2 政府绩效评估主体选择 ...................................................................................13 2.2.1 理论建构与现实依据 ............................................................................13 2.2.2 多元主体治理的原则与标准 ................................................................14 2.3 政府绩效评估多元主体的运作及其行为表现分析 .......................................15 2.3.1 主体行为表现的利益偏好及其影响 ....................................................15 2.3.2 多元主体之间的利益差别 ....................................................................15 2.3.3 多元主体的运作过程 ............................................................................15 2.4 本章小结 ...........................................................................................................16 第三章 政府绩效评估指标体系评价与构建................................................................17 3.1 政府绩效评估体系的评价 ...............................................................................17 3.1.1 绩效评估体系结构的系统性与完整性 ................................................17 3.1.2 政府绩效评估体系功能的稳定性与灵活性 ........................................17V 3.1.3 政府绩效评估系统的工具性与价值性 ................................................18 3.2 政府绩效评估体系指标构建 ...........................................................................19 3.2.1 绩效评估指标体系构建 ........................................................................19 3.2.2 指标构建中的问题及其发展方向 ........................................................20 3.2.3 指标体系构建的基本流程 ....................................................................20 3.2.4 指标体系的逻辑框架 ............................................................................22 3.3 本章小结 ...........................................................................................................23 第四章 政府绩效评估方法选择及其实证研究............................................................24 4.1 客观评估与主观评估的组合与平衡 ...............................................................24 4.1.1 绩效评估的常用办法 ............................................................................24 4.1.2 绩效评估的自身特性与客观评估方法的局限 ....................................24 4.1.3 绩效评估精确性要求与主观评估方法的局限 ....................................25 4.2 绩效评估模型构建及其应用 ...........................................................................26 4.2.1 政府绩效评估的公众满意度测评模型的构建 ....................................26 4.2.2 公众满意度测评方法的科学性与绩效评估方法选择 ........................26 4.2.3 政府公众满意度测评方法的实证分析 ................................................27 4.3 本章小结 ...........................................................................................................36 第五章 政府绩效评估的制度安排及对策研究............................................................37 5.1 绩效评估体系制度安排短缺与建设困境 .......................................................37 5.1.1 绩效评估制度安排的价值预期 ............................................................37 5.1.2 绩效评估制度短缺及其建设的影响 ....................................................38 5.2 政府绩效评估制度对策建议 ...........................................................................39 5.2.1 推进绩效评估的民主化与制度化 ........................................................39 5.2.2 加强政府绩效评估的制度供给 ............................................................40 5.2.3 加速政府绩效评估的立法进程 ............................................................41 5.2.4 加速政府问责制度与结果运用制度建设 ............................................42 5.3 本章小结 ...........................................................................................................43 第六章 结论与展望........................................................................................................44VI