政府投资项目管理论文，浅议当前我国政府投资项目存在问题及对策
Discussion on the current government investment projects in China Problems and Countermeasures
One, foreword
Long-term since, government investment projects by the government and relevant departments to rely on its unique administrative rights and functions to the operation and management of. The government as the owner of government investment project, project of governmental investment from the investment decision, the transfer of funds, implement the construction enterprise to build consign to use the whole process of the implementation of the direct management of the model. This management mode is characterized by administrative power in the economy and the allocation of resources to play a leading role, it is the pursuit of investment scale, investment benefit to ignore; progress, despise quality; focus on investment gross, ignore the investment structure. Therefore, to improve the government investment project investment benefit, must be further studied for the government investment project management mode, which is the major problem of imminent.
In two, China's current government investment project management present situation and the existing problems
1, the traditional management mode of government investment project and the drawbacks of prominent dominant
Our country government investment project management in the past are from the disbursement of funds use units to form a command, planning department, capital construction office to implementation of the project management, the capital construction team is usually temporary existence form, professional level is low, the work insufficient standard, thus causing problems such as repeated waste social resources. But in the planned economy period due to the presence of mature engineering consulting industry, cannot achieve socialization, commercialize management services, construction unit from the area to do the project management is also often helpless choice. In this case, the government investment project management presents the diversification, the temporary and the basic characteristics of self.
In 2, lack of unified management system and rules
Current state and local not for government investment project management system, each city is different, in the system and the management way basically is the act of one's own free will. Although the country has formulated" the bidding law"," contract law"," construction law", but the main object is covered a larger area, to the government investment project management system is also not uniform. Therefore, all around is basically according to their own needs to determine how to management of government investment project. The city infrastructure construction management as an example, some city government investment projects is to direct government management, some city is a business unit management, there are some city founded the company managing the implementation of. The establishment of the company, the company 's area of responsibility is different, some of the company 's investment and financing, construction as a whole, some companies are specialized in construction project management. The government investment project management unit in charge, from the volume accounted for a larger share of the sector, mostly in the administrative department in charge of construction, in the planning department, at the same time also dispersed in such as the Department of land administration, urban construction department, water conservancy, the traffic department and other departments.
In 3, the management of government investment project investment lack of control
For government investment projects, the most major problem is the government investment projects in the virtual. Government investment project general management committee. Management Committee of finance, committee of planning, general by Project Construction Committee and other relevant government departments. Although many government departments are involved in project management, but there is a branch to assume full responsibility for the investment main body, belonging to the project construction units do not get real legal status, nor of the state-owned investment effect and risk responsibility, government investment responsibility empty. Government investment project management mechanism may be responsible for the organization and implementation of projects, and the exercise of construction market supervision responsibility, this is tantamount to athletes and referees two any body, will cause the government investment projects supervision situation, some of the construction market and construction management of the laws and regulations of the government investment projects lack of binding.
Three, the reform of China's Government Investment Project Management Countermeasures
Many city has been realized for government investment project to reform the necessity and urgency of the issue, had begun to undertake reform, the trend of reforms is professional centralized management. Many city government departments concerned, the owners, the current government investment management mechanism for government investment project management mode of the original defects existing in the deep feelings, unanimously called for government investment projects to accelerate the pace of reform. And some city had begun to reform. Local government investment engineering measures of reform is not the same, but the starting point is consistent, namely, to the government investment project implementation of professional management, in accordance with the "investment, construction, supervision, the use of" separation principle, the establishment of clear responsibilities, effective, scientific and standardized government investment project management mechanism, improve the benefit of investment and management level.
1, using the general government investment project model, progressive restriction of government investment project owners committee set up temporarily set up project management project practice, to entrust the professional project management, consulting, supervision company for the project management. It can make the government investment projects using social engineering management services to improve the level of management, it can promote the domestic engineering consulting company's business development, make domestic engineering consulting services market in demand and supply two respects develop and promote each other.
2, fully rely on the professional and intermediary organization of government management mechanism itself is mainly composed of architects, project division, contract lawyers and other professionals; on the other hand, in addition to the government itself of project management, usually in accordance with the provisions of the program selection and by the corresponding project advisory company to manage, the government implemented supervision. At the same time, all of the important technical link should have professional gatekeeper, project quality, safety, cost, technology and responsibility should be very clear, these professionals in the government's strict management or by a professional association, society organization to register. Because the professional risk liability, unlimited economic responsibility and liability insurance system constraints, formed the whole project consulting industry personnel must be reported to the government is responsible for the owners, to run a mechanism, arouse the professionals and institutions of responsibility, so that they become the project of high quality, low cost complete assurance foundation. This can reduce the burden of government investment projects, but also conducive to the realization of the goal of investment.
3, establish and improve the supervision system of government investment projects in our country at present, the government investment projects supervision departments is very complex, including inspection, monitoring, auditing, finance, committee of planning and construction and other relevant departments of the various institutions, so many government agencies to supervise the management of government investment, easy to bring responsibility hard to distinguish, work hard to coordinate the problems, leaving many gray areas. Therefore, first of all must re-examine existing supervision system, strengthening the coordination work, and should also learn the successful experience of foreign countries, establish and aggrandizement National People's Congress and the public supervision, make the government investment project truly become the "Sunshine Action", play its due benefits.
In 4, the government, social organizations and citizens to create positive interactive cooperation mechanism reform so that the government, social organizations and citizens in their respective roles have changed, the government investment project to commercialize reform must weigh model government, social organizations and citizens to actively interact with the cooperation mechanism. First, the government serves as the government investment project facilitators, collaborators, managers and supervisors, must be in macroscopical adjusting control, policy guidance and supervision and management to play a leading role to play; second, project investment, project management, consulting, design, contracting, construction, supervision and other enterprises, intermediary service institutions, industry associations. The function of social organization, guide them in accordance with their own characteristics involved in the government investment construction project, management and operation, to the community to provide normative public services, by operating profit or service charges to seek development; third, guide the public to participate actively in order to improve the effectiveness of public services. The government should maximize the safeguarding public rights, clear the public has the right on a fair basis to enjoy the government investment projects bring to public service, have the right to know government project investment, construction content, quality and service charges standard and basis, have the right to choose to provide the main service and service items, and when fully informed of the to pay a service fee, to provide service of irregularities in the government have the right to sue, to obtain compensation.
5, establish and improve the government investment project management rules and regulations, the government investment project management into the legal orbit of a construction project is the system of accountability. Project legal person to construction project quality, time limit for a project and investment has overall responsibility for the. At the same time, to build the center tube interior, also through the implementation of project manager responsibility system and other forms, will build the management responsibility is decomposed fulfil person. Two is the public bidding system. Bidding purposes, not only is preferred good units, but also to ensure clean government. Three of /investment control and audit supervision system. In order to effectively control the project cost, to gradually achieve no design budgetary estimate, not project approving; no construction graph budget, not for bidding. Strict control of construction site visa, the necessary visa must be approved by Party A, supervision, design common confirmation can be incorporated into the final accounts; four monitoring system. The government project investment is huge, the government investment project construction management center with project contract authority, must establish the mechanism of balance.
一、引言
长期以来，政府投资项目是由政府及其相关职能部门依靠其特有的行政权利和职能来管理和运作。政府作为政府投资项目的业主，对政府投资项目从投资决策、资金调拨、落实施工企业到建成交付使用全过程实施直接管理的模式。这种管理模式的特征是行政力量在经济运行与资源配置中起主导作用，它追求投资规模，忽视投资效益；注重进度，轻视质量；着重投资总量，忽略投资结构。因此，要提高政府投资项目的投资效益，必须深入研究适合的政府投资项目管理模式，这是迫在眉睫的重大问题。
二、我国现行的政府投资项目管理现状及存在的问题
1、传统的政府投资项目管理模式弊端突出且占据主导地位
我国政府投资项目的管理过去均是由拨付资金的使用单位自行筹组指挥部、筹建处、基建办来实施项目工程管理，这些基建班子一般属临时筹组，存在人员专业水平偏低、工作不够规范等问题、从而造成社会资源反复浪费。但在计划经济时期因不存在成熟的工程咨询业，无法求得社会化、市场化的管理服务，建设单位自搭班子来做项目管理往往也是无奈的选择。在这种情况下，政府投资项目的管理呈现出分散化、临时性和自营性的基本特征。
2、缺乏统一的管理制度和规则
目前国家和地方基本没有针对政府投资项目的管理制度，各个城市做法不一，在体制和管理方式上基本上是各自为政。虽然国家制定有《招标投标法》、《合同法》、《建筑法》等，但主要对象都是涵盖了更大的范围，对政府投资项目的管理体制也不统一。因此，各地基本上是根据自己的需要来确定政府投资项目如何来管理。以城市基础设施建设管理为例，有的城市政府投资项目是以政府直接管理为主，有的城市是设一事业单位进行管理，还有一些城市成立公司实施管理。成立公司的，公司的职责范围又有不同，有的公司是投融资、建设为一体的，有的公司则是专司建设工程管理。政府投资项目的管理的归口单位，从量上占较大份额的部门来看，大部分在建设行政主管部门，一些在计划部门，同时也还分散在如土地行政管理部门、城建部门、水利、交通部门等多个部门。
3、政府管理部门对政府投资项目投资监控不力
对于政府投资项目而言，最为主要的问题是政府投资项目的虚置。政府投资项目业主一般是管理委员会。管理委员会一般由财政、计委、建委和其它相关政府部门组成。虽然许多政府部门都参与了项目的管理，但是没有一个部门承担投资主体的全部责任，从属于的项目建设单位没有获得真正的法人地位，也无须对国有投资的效果和风险负责，政府投资责任虚化。政府投资项目管理机构可能既负责项目的组织实施，又行使建设市场监管的职责，这无异于运动员与裁判二任一身，会造成对政府投资项目监管不力的局面，一些有关建设市场和建设管理的法律法规对政府投资项目缺乏约束力。
三、改革我国政府投资项目管理的对策
许多城市已经意识到对于政府投资项目改革问题的必要性和紧迫性，已经在着手进行改革，改革的趋势是专业化的集中管理。很多城市政府有关管理部门、业主、现行政府投资管理机构对于原有政府投资项目管理方式存在的弊病感受很深，一致呼吁要加快政府投资项目改革的步伐。而且有些城市已经在着手进行改革。各地政府投资工程改革措施虽不相同，但出发点是一致的，即对政府投资工程实行专业化统一管理，按照“投资、建设、监管、使用”分离的原则，建立职责明确、制约有效、科学规范的政府投资工程管理运作机制，提高投资效益和管理水平。
1、采用国际通用的政府管理投资项目的模式，逐步限制政府投资项目的业主委员会临时组建自设的工程管理机构管理项目的作法，改为委托专业的工程管理、咨询、监理公司代行项目的管理。这样做既可使政府投资的重点项目使用社会化工程管理服务提高管理水平，也可促进国内工程咨询公司的业务发展，使国内工程咨询服务市场在需求与有效供给两个方面都得到发展并相互促进。
2、充分依靠专业人士和中介组织政府的专业管理机构本身就主要是由建筑师、项目师、合同律师等专业人士构成；另一方面，政府除了自身对项目进行管理外，一般都要按照规定的程序选择和委托相应的项目咨询公司来管理，政府实施监督。同时，所有的重要技术环节都应有专业人士把关，项目中质量、技术、安全、成本等责任应非常明晰，这些专业人士在政府的严格管理之下或由专业协会、学会组织进行注册。由于专业人士的风险责任制度、无限经济责任和责任保险制度的约束，形成整个项目咨询行业人员必须向政府负责、向业主负责的运行机制，调动起专业人士和机构的责任心，使他们成为项目高质量、低成本完成的保证基石。这既可以减轻政府管理投资项目的负担，也有利于投资目标的实现。
3、建立完善的政府投资项目监督体系我国目前对政府投资项目的监督部门非常庞杂，包括纪检、监察、审计、财政、计委以及建设等有关部门的各种机构，这么多的党政机构都去监督政府投资管理，容易带来职责难分清、工作难协调的问题，留下许多灰色地带。因此首先必须重新审视现有的监督体系，加强协调工作，然后还应学习国外的成功经验，建立并强化人大及公众的监督，使政府投资项目真正成为“阳光下的行动”，发挥其应有的效益。
4、营造政府、社会组织和公民积极互动的协作机制改革使政府、社会组织和公民各自的角色定位产生了变化，政府投资工程市场化改革必须重塑政府、社会组织和公民积极互动的协作机制。第一，政府作为政府投资工程的促进者、合作者、管理者和监督者，必须在宏观调控、政策引导和监督管理中发挥主导的作用；第二，发挥包括项目投资、工程管理、咨询、设计、总承包、施工、监理等企业、中介服务机构、行业协会在内的各种社会组织的作用，引导他们按照自身特点参与政府工程的投资建设、管理运行，向社会提供规范的公共服务，通过经营赢利或服务收费以谋求发展；第三，引导公众积极参与以提高公共服务的有效性。政府应当最大限度地维护公众权益，明确公众有权利在公平的基础上享受政府投资工程带来的公共服务，有权利了解政府工程投资、建设的内容、质量以及服务收费标准和依据，有权利选择提供服务的主体和服务项目，并在充分知情的情况下支付服务费用，对提供服务中的违规行为有权利向政府提出控告，获得赔偿。
5、建立和完善政府投资工程管理的规章制度，将政府投资工程管理纳入法制轨道一是建设项目的问责制度。项目法人必须就建设项目的质量、工期和投资全面负责。同时，建管中心内部，也要通过推行项目负责人责任制等形式，将建设管理责任分解落实到个人。二是招标投标制度。招标投标的目的，不仅仅是优选好的单位，也是为了保证政府的廉洁。三是投资控制审计监督制度。为了有效的控制工程造价，要逐步做到没有设计概算的，不立项；没有施工图预算的，不进行招标投标。严格控制施工现场签证，必要的签证须经甲方、监理、设计共同确认方可纳入决算；四是监督制度。政府工程投资额巨大，政府投资工程建设管理中心拥有工程发包等权力，必须建立监督制衡机制。