1、To introduce a third party and improve the performance evaluation system of social assistanceZhang DongxiaSocial Assistance Office of Department of Civil Affairs of Guangdong ProvinceDecember 2015Disclaimer:The views expressed in this document are those of the author,and do not necessarily reflect t
2、he views and policies of the Asian Development Bank(ADB),its Board of Directors,or the governments they represent.ADB does not guarantee the accuracy of the data included in this document,and accept no responsibility for any consequence of their use.By making any designation or reference to a partic
3、ular territory or geographical area,or by using the term“country”in this document,ADB does not intend to make any judgments as to the legal or other status of any territory or area.Preface Guangdong is a leading province to explore performance management of financial expenditure around the nation.Pe
4、rformance Evaluation of Guangdong Province2003200420092011Carry out the pilot workDelegate the performance evaluation to a third party as a wholeSet up the first province level performance evaluarion organizationSet up the technology system of performance evaluation The scope of performance evaluati
5、on in Guangdong Province includes not only the minimum living standard security funds but also other social assistance funds.After 12 years of exploration and development,Guangdong Province accumulated certain experiences in the organization,regulation and practice of performance evaluation.Performa
6、nce evaluation of social assistance expenditureThe minimun living standard security systemRural five guarantees systemMedical assistance syetem in both urban and rural areasConstruction of elderly homesManagement costsOther funds used for vulnerable people(such as price subsidies)the necessity of pe
7、rformance evaluation for social assistance expenditureOpinions of the State Council on further strengthening and improving Opinions of the State Council on further strengthening and improving the minimum living security work No.45,2012the minimum living security work No.45,2012 The policy inplementa
8、tion of the minimum living security system should be considered when evaluating the performance of local governments.The ministry of civil affairs should cooperate with the ministry of finance and other departments to work out the performance evaluation indicator and methods for the minimum living s
9、ecurity system and organize the annual performance evaluation of the minimum living security in all provinces(regions,cities).1、National strategythe focus changes from collecting funds to promoting effects.Continued 2、Financial reformPaying more attention to the usage of fundsSince the bottom line l
10、ivelihood scheme is implemented,the expected total finance investment of social assiatance of the whole province is 363 hundreds million,the provincal finance investment is 204 hundreds million accounting for 56%.Practice has proved that fiscal expenditure performance evaluation can form effective f
11、inancial law enforcement and supervision constraint.Apart from this,it can supervise and urge related departments to guide and strength the use of funds correctly so that funds can be used in the blade.Performance has goals,allocation is implemented according to schedule,distribution is made sociali
12、zation and effect has evaluation.Year2014201520162017totalThe expected total financial investment708397113363The provincial financial investment38465565204Units:one hunderd million yuanSince the bottom line livelihood scheme is implemented,the expected total finance investment of social assistance o
13、f the whole province is 363 hundreds million,the provincial financial investment is 204 hundreds million(56%of the total).Performance are led by goals,assistances are distributed according to schedule by means of social organizations,and effects have been evaluated.performance evaluation can guide a
14、nd supervise the work of government departments and strengthen the effectiveness of fiscal expenditure.Continued 3、innovationsbe more problem-orientedThe five development“ideas：Innovative Development,Coordinated Development,Green Development,Open Development and Shared Development Fifth Plenary Sess
15、ion of 18th CPC Central CommitteeCarry out performance evaluationFind out problemsImprove systemsensure thatvulnerablepeople enjoy the achievement of reform and development Realize the goals of social assistanceInnovation of Guangdong Province introduction of a third party 1、The advantages of introd
16、ucing a third party in performance evaluationProfessional staff of certified accountantsStaff of Financial and civil affairs departmentsTraditional methodself-evaluation of departmentsThird party evaluationSelf-evaluation of departments Open evaluation reports of a third partyThe justice and indepen
17、dence of resultsThe common practice in western countries,Paying more attention to the resultsThe effectiveness of performance evaluationFormalizationProfessional evaluationContinued 2、practices in Guangdong Province:introducing a third party in social assistance evaluationSet up the performance goal
18、sorganize and provide fiscal supportaccording to the goalsMonitoring the processEvaluating the resultsFund allocationA third party:continued 2、practices in Guangdong Province The evaluation results are transparent.Index system is personalized.The subjectS of evaluation are professional.The evaluatio
19、n process is scientific.Open biddingSubmit evaluation schemeOrganize experts to carry out evaluationmultiple parties research and establish the index system.Follow the principle of economy,efficiency,effect and.Self-evaluation of departmentsWritten evaluation of expertsImplement on-site evaluationCo
20、mprehensive evaluation of third party institutionsPublish to the society.important for future financial arrangements.Achievements in Guangdong The evaluation results of central and provincial social assistance fund are good for 9 years until 2014.1、making the best use of fiscal expenditure and provi
21、ding a safety net(1)Social assistance funds are increasing year by year.Year201020112012201320142015expenditure314047597083Units:one hunderd million yuansocial assistance expenditure in GuangdongUnits:one hunderd million yuanachievements 1、(2)The level of assistance is increasing.Programs20102011201
22、2201320142015minimum living standard（yuan/month）cities and towns266292325386454510rural areas205228262308355400compensation（yuan/month）cities and towns151172188281370410rural areas8193102135170200 The minimum living standard and level of compensation is increasing year by year.The minimum living sta
23、ndard and level of compensation is increasing year by year.standard in cities and townsstandard in rural areasCompensation in cities and townsCompensation in rural areas Comparison between actual performance of minimum living standard and the goalsprogram/year201020112012201320142015Compensation in
24、urban areas（yuan/every person every month）target number150170180242333374actual number151172188281370410Compensation in rural areas （yuan/every person every month）target number808590109147172actual number8193102135170200The goals identified in the early year has been Achieved Comparison between the
25、actual performance of minimum living standard and the goals compensation in cities and townsCompensation in rural areastarget numberactual numbertarget numberactual numberachievements Program/Year201020112012201320142015standard（yuan/year）Institutional care390042005500670081008400Community care21002
26、4003400470062006500Rural five guarantees standard is increasing year by year.Institutional careCommunity careachievements Comparison between the actual performance of rural five guarantees and the goals reaching 60%of local rural residents disposable income per capita in previous year.Program2012201
27、320142015Community caretarget number3280456858976217actual number3400470062006500target numberactual numberachievements.The level of medical assistance is increasing year by year.The compensation rate reaches 70%.“One-stop”settlement system is enforced.Carry out medical assistance for people with ve
28、ry serious diseases.achievements (3)The ability of management is improving Social relief work joint conference system is built among the province.Guangdong has issued a provincial information checking method and 100%of counties have established the mechanism.the information Checking system will be p
29、ut into use.achievements (3)The ability of managent is improving.All of towns(communities)among the province established social assistance windows.1626 staff are employed at primary level through government purchasing services.achievements 2、improving policies according to evaluation resultsProvinci
30、al funds are allocated in the middle of the year,local governments have difficulty in making budgets.Allocation are made at the end of the year,and The local government scan make budgets for the next year accordingly.The standards are set in the middle of the year andthere is deficient time for loca
31、l governments to improve standards Publish the minimum living standard in the end of every year and all areas canimprove standards in the early of next year.People know little about the policy.Film,radio programs，cooperate with People Dailys websites,put up posters and so onFunds allocation：Standard
32、 setting：Propaganda work:achievements.3、Strengthen the external supervision and improve assistance efficiencySolve the contradiction that government act both as players and judges.SocietyEvaluation results are reported to NPC,supervision and audit departments.ExternalChanging from process-oriented t
33、o results-oriented and promote the improvement of administrative ability and efficiency.Internal探索引入第三方探索引入第三方 完善社会救助绩效评价体系完善社会救助绩效评价体系广东省民政厅社会救助处 张东霞2015年12月前言广东是全国探索财政支出绩效管理的先行省份广东省广东省绩效评价绩效评价2003200420092011开展试点工作整体委托第三方绩效评价成立首个省级绩效评价机构构建绩效评价技术体系 广东省绩效评价范围不仅仅包括低保资金，覆盖所有社会救助资金，经过12年的探索与发展，在绩效评价的组织
34、机构、制度规范和探索实践等方面积累了一定经验。最低生活保障农村五保供养城乡医疗救助敬老院建设工作经费其他用于困难群众的资金（价格补贴等）社会救助支出绩效评价内容一、社会救助财政支出绩效评价的必要性一、社会救助财政支出绩效评价的必要性国务院关于进一步加强和改进最低生活保障工作的意见（国发201245号）：“各地要将最低生活保障政策落实情况纳入地方各级人民政府绩效考核”“民政部要会同财政部等部门研究建立最低生活保障工作绩效评价指标体系和评价办法，并组织开展对各省（区、市）最低生活保障工作的年度绩效评价。”（一）国家战略部署由重资金筹集到重使用效果一、社会救助财政支出绩效评价的必要性一、社会救助财政
35、支出绩效评价的必要性根据文件要求，2014年，民政部、财政部印发最低生活保障工作绩效评价办法（民发201421号），强化低保工作绩效评价。同年，国务院印发关于深化预算管理制度改革的决定(国发201445号)，要求健全预算绩效管理机制，全面推进预算绩效管理工作。（一）国家战略部署由重资金筹集到重使用效果一、社会救助财政支出绩效评价的必要性一、社会救助财政支出绩效评价的必要性实践证明，通过财政支出绩效评价，能够形成有效的财政执法和监督约束，督促部门单位正确引导和加强资金管理使用，把钱真正花在“刀刃上”。（二）财政规范发展要求注重资金使用过程底线民生方案实施以来，2014年-2017年全省社会救助资
36、金预计总投入 363363亿元，其中省级财政投入204204亿元，占56%。绩效有目标，拨付按进度，发放社会化，效果有评价。年份年份2014201520162017合计预计总投入预计总投入708397113363省财政投入省财政投入38465565204单位：亿元一、社会救助财政支出绩效评价的必要性一、社会救助财政支出绩效评价的必要性（三）促进创新发展注重以问题为导向“五大发展”理念：创新发展、协调发展、绿色发展、开放发展、共享发展 中共十八届五中全会开展绩效评价发现问题修正制度更好确保困难群众共享改革发展成果实现社会救助目标二、广东省绩效评价的创新做法二、广东省绩效评价的创新做法 引入财政支
37、出绩效第三方评价体系引入财政支出绩效第三方评价体系 （一）引入财政支出绩效第三方评价体系的优势会计师事务所专业人士财政、民政工作人员兼职传统方法单位自评第三方评价绩效评价的专业特性单位自己评价自己第三方机构公开评价报告结果的公正性、独立性西方国家的通行做法，注重结果绩效评价的实效性较为形式化二、广东省绩效评价的创新做法二、广东省绩效评价的创新做法 引入财政支出绩效第三方评价体系引入财政支出绩效第三方评价体系 （二）广东引入财政支出绩效第三方评价的具体做法制定绩效目标制定绩效目标根据目标根据目标安排预算并下达安排预算并下达绩效过程监测绩效过程监测绩效结果监测绩效结果监测以奖代补以奖代补分配资金分
38、配资金第三方机构公正、公开第三方机构公正、公开 第三方评价社会救助绩效模式：二、广东省绩效评价的创新做法二、广东省绩效评价的创新做法 引入财政支出绩效第三方评价体系引入财政支出绩效第三方评价体系 （二）广东引入财政支出绩效第三方评价的具体做法 评价结果透明化指标体系个性化评价主体专业化评价流程科学化公开招标提交评价方案组织专家评审多方研究确立 评价指标体系 框架遵循“经济性、效率性、效果 性和公平性统 筹结合”的原 则用款单位绩效 自评专家书面评审实施现场评价第三方机构 综合评价经省财政厅 审核后向社会 公布作为今后资金 安排的重要 依据三、成效三、成效 至2014年，中央和省级财政支出社会救
39、助资金绩效考评连续9年合格率都是100%（一）充分发挥资金效益，实现兜底救助1、社会救助资金投入逐年递增年份年份201020112012201320142015资金支出314047597083单位：亿元三、成效三、成效 （一）充分发挥资金效益，实现兜底救助2、保障水平不断提高项目项目201020112012201320142015低保标准（元/月）城镇266292325386454510农村205228262308355400补差水平（元/月）城镇151172188281370410农村8193102135170200低保标准和补差水平逐年提升 低保补差实际绩效与年初目标对比项目项目/年份年份
40、201020112012201320142015城镇低保 补差 （元/人月）目标值150170180242333374实际值151172188281370410农村低保 补差 （元/人月）目标值808590109147172实际值8193102135170200 完成了年初 确定的目标三、成效三、成效 （一）充分发挥资金效益，实现兜底救助2、保障水平不断提高项目项目/年份年份201020112012201320142015供养标准（元/年）集中390042005500670081008400分散210024003400470062006500农村五保供养标准逐年提升三、成效三、成效 （一）充分
41、发挥资金效益，实现兜底救助2、保障水平不断提高农村五保供养标准实际绩效与年初目标对比达到当地上年度农村居民人均可支配收入的60%项目项目2012201320142015分散供养标准目标值3280456858976217实际值3400470062006500三、成效三、成效 （一）充分发挥资金效益，实现兜底救助2、保障水平不断提高医疗救助水平逐年提升政策范围内自负费用的救助比例 提高到70%“一站式”结算系统全面投入使用开展“重特大疾病”医疗救助工作三、成效三、成效 （一）充分发挥资金效益，实现兜底救助3、管理服务能力持续提升全省100%建立社会救助工作联席会议制度印发了省级核对办法，100%的
42、县（市、区）建立了核对机制核对系统即将投入使用三、成效三、成效 （一）充分发挥资金效益，实现兜底救助3、管理服务能力持续提升全省100%的乡镇（街道）全部建立了社会救助服务窗口通过政府购买服务配备了1626名基层工作人员三、成效三、成效 （二）针对评价结果反馈，研究修正政策省级资金年中下达地方难预算转变为年底全部下达第二年省级预算年中定标准各地提标时间不足每年年底公布低保标准，各地年初提标社会知晓度低拍摄宣传片，录广播节目，与人民网合作，张贴海报等资金下达：标准制定：宣传工作：三、成效三、成效 （三）加强外部监管作用，提升救助效能。解决了政府部门“既当运动员，又当裁判员”的矛盾社会评价结果通报给人大、监察、审计等部门，加强外部监督力度外部由过程导向转为结果导向，推动职能部门强化行政能力和效能建设内部
