An Overview of Accountability Mechanisms in PublicPrivate Partnerships in South Africa.docx
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AnOverviewofAccountabilityMechanismsinPublicPrivatePartnershipsinSouthAfrica
Ufahamu:
AJournalofAfricanStudies
UCLA
PeerReviewed
同行评审
Title:
题目:
AnOverviewofAccountabilityMechanismsinPublic-PrivatePartnershipsinSouthAfrica
南非的公私合作问责机制概述
JournalIssue:
期刊号:
Ufahamu:
AJournalofAfricanStudies,37
(1)
Ufahamu:
非洲研究杂志,37
(1)
Author:
作者:
Fombad,Madeleine,UNISA
Fombad,Madeleine,UNISA
PublicationDate:
2013
出版日期:
2013
Permalink:
http:
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永久链接:
http:
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AuthorBio:
De
Keywords:
关键词:
accountabilitypublicprivatepartershipSouthAfrica
责任公共合作南非
LocalIdentifier:
international_asc_ufahamu_13947
Abstract:
摘要
Public-privatepartnerships(PPPs)aregenerallyenvisagedbycountriesaroundtheworldasmajorinnovativepolicytoolsthatwillremedyingthelackofdynamismintraditionalpublicservicedeliverybyincreasinginvestmentininfrastructureaswellasimprovingthedeliveryofsocialservices.Tothisend,theSouthAfricangovernmentsince1999hasadoptedtheuseofPPPsasanintegralstrategyinitsnationalandinternationaldevelopmentalplan.However,withthegrowingtrendsininternationalbestpractice,noticeableloopholesandomissionshavebeenobservedintheexistingPPPlegalframeworkresultinginsomeaccountabilitygaps.Therefore,ifthegovernmentneedstocomplimentitsdevelopmentalaspirations,thereisaneedtoinstilltheconfidenceandcompetitivenessamongstbidderstousePPPsascoherentdevelopmentorientatedbestvaluetooltodeliverservicesandinfrastructurestotaxpayers.ThispaperthereforedrawsattentiontosomeoftheaccountabilitychallengesresultingfromthePPPlegalframeworkandsuggestssometechniquesthatcouldserveasaplatformforthepossiblereviewandamendmentofcorecompetencies
公私合作(PPPs)一般被设想为世界各国主要的创新政策工具,将通过增加基础设施投资和改善提供的社会服务来弥补传统公共服务所缺乏的活力。
为此,自1999年以来,南非政府已通过利用公私合作作为其在国家和国际的发展计划中一项不可或缺的战略。
然而,随着国际最佳做法对公私合作的问责机制与良好治理的趋势增长,明显的漏洞和疏忽在现有的公私合作的法律框架下被发现。
因此,如果政府要实现其发展愿景,有必要通过使用公私合作作为连贯和发展的最佳工具向纳税人提供服务和基础设施,来向投标人灌输信心和竞争。
因此,本文关注一些由公私合作的法律框架所带来的问责制挑战,并提出一些技术,这些技术可以作为一个可能进行审查和修订核心竞争力的平台。
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AnOverviewofAccountabilityMechanismsinPublic-PrivatePartnershipsinSouthAfrica
南非的公私合作问责机制概述
Abstract
摘要
Public-privatepartnerships(PPPs)aregenerallyenvisagedbycountriesaroundtheworldasmajorinnovativepolicytoolsthatwillremedythelackofdynamismintraditionalpublicservicedeliverybyincreasinginvestmentininfrastructureaswellasimprovingthedeliveryofsocialservices.Tothisend,since1999theSouthAfricangovernmenthasadoptedtheuseofPPPsasanintegralstrategyinitsnationalandinternationaldevelopmentalplan.However,withthegrowingtrendsininternationalbestpracticeforaccountabilityandgoodgovernanceinPPPsnoticeableloopholesandomissionshavebeenobservedintheexistingPPPlegalframework.Therefore,ifthegovernmentneedstofulfilitsdevelopmentalaspirations,thereisaneedtoinstilltheconfidenceandcompetitivenessamongstbidderstousePPPsascoherentanddevelopment-orientatedbestvaluetoolstodeliverservicesandinfrastructurestotaxpayers.Hence,thispaperdrawsattentiontosomeoftheaccountabilitychallengesresultingfromthePPPlegalframeworkandsuggestssometechniquesthatcouldserveasaplatformforthepossiblereviewandamendmentofcorecompetencies
公私合作(PPPs)一般被设想为世界各国主要的创新政策工具,将通过增加基础设施投资和改善提供的社会服务来弥补传统公共服务所缺乏的活力。
为此,自1999年以来,南非政府已通过利用公私合作作为其在国家和国际的发展计划中一项不可或缺的战略。
然而,随着国际最佳做法对公私合作的问责机制与良好治理的趋势增长,明显的漏洞和疏忽在现有的公私合作的法律框架下被发现。
因此,如果政府要实现其发展愿景,有必要通过使用公私合作作为连贯和发展的最佳工具向纳税人提供服务和基础设施,来向投标人灌输信心和竞争。
因此,本文关注一些由公私合作的法律框架所带来的问责制挑战,并提出一些技术,这些技术可以作为一个可能进行审查和修订核心竞争力的平台。
Keywords
关键词
Public-privatepartnership,accountability,communityparticipation,transparency,
MillenniumDevelopmentGoals
公私合作、问责制、社区参与、透明度、千年发展目标
AnOverviewofAccountabilityMechanismsinPublic-PrivatePartnershipsinSouthAfrica
南非的公私合作问责机制概述
1.Introduction
导论
Public-privatepartnerships(PPPs)areenvisagedbycountriesaroundtheworldasmajorinnovativepolicytoolsthatwillremedythelackofdynamismintraditionalpublicservicedeliverybyincreasinginvestmentininfrastructureaswellasimprovingthedeliveryofsocialservices.Tothisend,since1999theSouththeAfricangovernmenthasadoptedtheuseofPPPsasanintegralstrategyinitsnationalandinternationaldevelopmentalplantoimproveitsdeeplyrootedsocio-economic,political,fiscal,andsocietalproblems.ExamplesofthedevelopmentstrategiesaretheMillenniumDevelopmentGoals(MDG),theAcceleratedandGrowthInitiativeforSouthAfrica(Asgi-SA),theMediumTermStrategicFramework(MTSF,2009–2014),andtheNationalDevelopmentPlan(NDP)thatchartsthedevelopmentandprogressofthecountryuntil2030.SouthAfricaistheleadingsub-SaharancountryinPPPs,withrobustlegislationandpolicies.ThecountryhascompletedsomeofthemostsuccessfulPPPs,amongstwhicharetheGautrainstate-of-the-artrapidrailnetwork,theInkosiAlbertLuthuliHospital,andtollroadssuchastheN1,N2,N3,andN4.However,withthegrowingtrendsininternationalbestpracticeforaccountabilitynoticeableloopholesandomissionshavebeenobservedintheexistinglegalframeworkforPPPs.,resultinginaccountabilitygaps.Therefore,ifthegovernmenthastofulfilitsdevelopmentalaspirations,thereisaneedtoinstillconfidenceamongstbiddersthatPPPsremainacoherentanddevelopment-orientatedbestvaluetooltodeliverservicesandinfrastructurestotaxpayers.
公私合作(PPPs)一般被设想为世界各国主要的创新政策工具,将通过增加基础设施投资和改善提供的社会服务来弥补传统公共服务所缺乏的活力。
为此,自1999年以来,南非政府已通过利用公私合作作为其在国家和国际的发展计划中一项不可或缺的战略。
发展战略的例子包括千年发展目标(MDG)、对南非倡议的加速、增长(Asgi-SA)、中期战略框架(MTSF,2009年-2014年)和国家发展计划(NDP),为直到2030年的国家进步与发展描绘出一副宏图。
南非有稳定的法律和政策,在公共合作领先于撒哈拉沙漠以南的国家。
国家已经完成了一些最成功的公私合作,其中包括高腾省使用最先进技术的高速铁路网络项目,因科西阿尔伯特·卢图利医院项目和如N1、N2、N3和N4收费公路项目。
然而,随着国际最佳做法对公私合作的问责机制与良好治理的趋势增长,明显的漏洞和疏忽在现有的公私合作的法律框架下被发现,从而在问责制方面产生了差距。
因此,如果政府要实现其发展愿景,有必要通过使用公私合作作为连贯和发展的最佳工具向纳税人提供服务和基础设施,来向投标人灌输信心和竞争。
ThispaperthereforedrawsattentiontosomeoftheshortcomingsofthePPPlegalframeworkinrelationtoenhancingaccountabilityandsuggestssometechniquesthatcouldserveasaplatformforthepossiblereviewandamendmentofthecorecompetenciesforPPPs.First,takingstockofthefast-growingliteratureonPPPs,aworkingdefinitionofPPPisproposed.Thesecondsectionexpoundsontheconceptofaccountability.ThethirdsectionprovidesanappraisalofthechallengestoaccountabilityinPPPsinSouthAfrica.ThefourthsectionsuggestssomemechanismsforenhancingaccountabilityinPPPs.
因此,本文关注一些由公私合作的法律框架所带来的问责制挑战,并提出一些技术,这些技术可以作为一个可能进行审查和修订核心竞争力的平台。
第一部分通过快速增长的文献对公共合作进行评估,提出了PPP的工作定义。
第二部分论述了问责制的概念。
第三部分提供了对南非问责制的挑战的评估。
第四部分对提升公共合作的问责机制提出了一些提出了一些方法。
2.WhatarePPPs?
AlthoughPPPshaveexistedinsomeformsincetheRomanEmpire,e.g.,privatetaxandtollroads,thereremainssomeambiguityastowhatexactlythisconceptentails.Thedefinitionvariesamongstauthors’jurisdictionsandcontexts.Ingeneral,itaccommodatesavarietyofcooperative,long-termarrangementsbetweenthegovernmentandtheprivatesectorwherebyrisk,rewards,resources,skills,expertise,andfinancearesharedtoimproveinfrastructurenetworksandenhanceservicedeliveryintheformofcontractingout,outsourcing,donation,orprivatizationofpublicgood.TwodefinitionsarerelevanttotheunderstandingofPPPswithinthecontextofthispaper.First,PPPsaredefinedasapartnershipbetweenthepublicandprivatesectorpursuanttoalong-termcontractualagreementinvolvinghighcapitalcost,lengthycontractperiods,andsharingofrisks(Australia2006).Theseconddefinitionspecifiesrelationshipsbeyondcontractualcommitmentsandcaptureselementsoftrust,mutualcommitment,andsocialandcommunityobligations.Tothisend,Bovaird(2004)definesPPPsasworkingarrangementsbasedonamutualcommitmentoverandabovethatimpliedinanycontractbetweenapublic-sectororganizationandanyotherorganizationoutsidethepublicsector..ThedifferentmodelsofPPPsalreadyinimplementationinSouthAfricaaretheDesignFinanceOperate(DFO);Design,Finance,Build,Operate,Transfer(DFBOT);DesignandTransfer(DT);BuildOperate,Transfer(BOT)andequitypartnerships(TreasuryRegulation16;SouthAfrica2004c).
3.AccountabilityinPPPs
Accountabilityisrootedintheeffectiveprinciplesofgoodgovernanceandthefundamentalvaluesofademocraticsociety.ItisincreasinglyrecognizedthatgovernanceprinciplesandnormsshouldbeincorporatedintheoperationalizationanddesignatedobjectivesofPPPs(HodgeandGreve2005;CliftonandDuffield,2006;UNECHE2008;BrinkerhoffandBrinkerhoff2011).GiventheincreaseduseofPPPs,issuessurroundingtheiraccountabilityarebecomingcritical.ThreemaindimensionsofaccountabilitythatareusefulforunderstandingaccountabilityinPPPsinpracticaltermsarethehierarchicalperspective,thehorizontalperspective,andaccountabilityasavirtue.Thehierarchicalperspectiveisbasedonthetraditionalmodeofaccountability,wheretheverticalchainofauthorityandtheprincipalandagentrelationsareinherentinhierarchicalandbureaucraticsituations(Mulgan2003;Armstrong2005;Bovens2007).WithinthecontextofPPPs,hierarchicalaccountabilityreflectsastructurewhereindividualsperceivethemselvesasresponsibleforreporting,justifying,orexplain