公共体育场馆是我国构建体育公共服务体系,提供体育公共服务的主要平台和依托,在我国全面建设小康社会和构建和谐社会的进程中具有重要意义,发挥着重要作用。在计划经济体制下形成的我国公共体育场馆管理体制,日益不能适应经济和社会的快速发展,已严重制约了我国体育场馆乃至体育事业的发展。因此,深化公共体育场馆管理体制改革,促进我国体育场馆和体育事业的科学发展,是一项迫在眉睫的需要我们进行深入研究的课题。
本文主要采用文献资料、问卷调查、专家访谈和数理统计等研究方法,就我国公共体育场馆的管理体制改革问题进行了较为深入的研究。
1.我国公共体育场馆管理体制的现状主要表现在多数公共体育场馆仍为传统事业单位,管理体制改革进展缓慢;经费来源方式多元化,以差额拨款为主;薪酬制度和人事制度满意度较低,需要调整;内部管理制度比较规范,但成本管理制度有待加强;公共体育场馆工作人员来源多元化,学历水平有较大提高;经营方式逐步多元化和经营状况有一定改观等方面。虽然我国公共体育场馆经过多年的改革,但其管理体制则是长期有改而无革,其现存问题主要表现为国有资产流失严重,监督缺位;政府干预较多,政事不分;冗员过多,消费性支出严重;经营创收乏力,政府财政负担严重;出资人缺位,激励机制不健全;责权利不统一,管人、管事和管资产相脱节;分散管理,公共体育场馆重复建设严重和经营方式落后,运营成本过高等方面。
2.体育与文化在诸多方面具有相似性,文化体制改革对公共体育场馆管理体制改革具有较强的启示和借鉴意义。文化体制改革的成功经验启示:公共体育场馆应坚持分类改革,划分公益性、混合性和经营性体育场馆;培育市场主体、委托或授权经营;建立体育场馆国有资产出资人制度;强化内部运行机制改革并争取政策支持,扶持体育场馆发展。
3.我国公共体育场馆分类改革的必要性体现在公共体育场馆管理体制的现状和政府职能的转变迫切需要对其进行分类改革,同时分类改革是公共体育场馆进一步发展和对其实施科学管理的需要,也是公共体育场馆等事业单位改革的必然要求等方面。公共体育场馆的分类改革及其改革方向选择的问题主要涉及公共产品及其民营化与政府职能等问题,因此其改革的理论基础主要包括公共产品理论、民营化理论和治理与新公共管理理论等。根据公共体育场馆所承担的任务职能的性质,将公共体育场馆分为公益性、经营性和混合性体育场馆。其中,公益性体育场馆主要以提供群众体育服务或运动训练为主,其服务具有较强的纯公共产品属性;经营性体育场馆则以提供竞赛表演服务或中高档健身娱乐服务为主。上述分类并不表明公益性体育场馆不能提供经营性服务,公益性体育场馆依然可以提供经营性体育服务,只是比重较低而已。
4.由于受传统公共体育场馆管理体制的影响,长期以来我国忽视对公共体育场馆占有、使用的国有资产的管理,导致目前我国公共体育场馆国有资产管理中存在政事、政资、管办不分,以行政型管理为主;国有资产管理制度不健全,缺乏约束机制,以及场馆国有资产使用效率低下等诸多问题。
5.当前我国公共体育场馆配套制度改革的现状及存在的问题主要表现在多为差额拨款事业单位,对财政拨款依赖度较高;职工工资和福利支出为公共体育场馆最主要支出,消费性支出过多;工资分配以职务和工龄分配为主,绩效工资制度未能建立,工资的激励机制难以体现;多数场馆实施了聘任制改革,但部分流于形式;工作人员以大专院校毕业生为主,来源多元化;多数场馆富余人员安置妥当;养老保险以机关事业单位养老保险为主;经营扶持政策不到位等。科技、文化领域事业单位配套制度改革对公共体育场馆配套制度改革的启示主要表现在:国家应统一部署,整体推进;先期试点,摸索经验;明确配套制度改革的制度设计,出台相应政策予以支持;分类改革,不同类型的公共体育场馆应采取不同的配套制度设计等方面。我国公共体育场馆配套制度改革的主要内容包括人事制度改革、分配制度改革、社会保障制度改革、人员分流安置、国有资产处置、政策支持和内部治理机制改革等方面。
6.公共体育场馆改革的复杂性要求政府加强监管,以推进其改革的顺利进行。同时,体育服务的准公共产品特点和信息不对称性,以及改革后体育场馆的逐利性,要求政府加强对其监管。公共体育场馆改革中加强政府监管有助于保障场馆市场化改革顺利进行,有效防止国有资产流失,提高场馆服务绩效,提供质高价廉服务,促进政企政事分离,推动政府职能转变。政企政事合一,以直接行政干预手段监管,以及体育行政部门监管为主,是当前我国公共体育场馆监管机制的主要特点。现在监管机制存在的问题表现在监管机构与场馆关系密切,利益趋同,监管缺位与越位并存,监管手段单一且不合理等。宁波游泳健身中心委托经营中政府监管成功经验的启示主要表现在:采用特许经营,引入竞争机制;签订委托合同,明确监管内容;注重对场馆公益性监管和多渠道监管,解决内部人控制问题等方面。公共体育场馆改革中政府应从市场准入与退出、持续服务、服务质量与价格、社会效益、国有资产和标准等方面加强监管。
7.提出分类改革,积极推进公共体育场馆配套制度改革,强化公共体育场馆内部体制改革,建立出资人制度,明晰产权,加强对公共体育场馆占有、使用的国有资产的管理和监督,以及政府应强化对公共体育场馆改革的监管等促进公共体育场馆管理体制改革的建议。
关键词: 公共体育场馆 管理体制 国有资产 监管 改革
The public sport facilities is the base of construction of public service system,it plays an significant role in our country and the process of building a harmonious society.Formed under the planned economy of our public sports facility management systems are increasingly unable to meet the rapid economic and social development,it has seriously hampered China’s sports sport facilities and even the development of sports.Therefore,the deepening of public sports stadium management system,promoting China’s sports facilities and sports science development is an urgent need for us to study.
In this paper,using literature,questionnaire surveys,expert interviews and mathematical statistics,research methods on the management of China’s reform of public sportsfacilities,conducted a more in-depth study.
1.China’s public sports facility management system of the status is mainly manifested in the majority of public sports facilities is still the traditional institutions,management system had been slow;diversify sources of funding methods in order to balance the main funding.Remuneration system and personnel system,the lower satisfaction needs to be adjusted;internal management system is more standardized,but the cost management system needs to be strengthened.Of public sports facilities to diversify the sources of staff,educational level has improved greatly;mode of operation and gradually diversified and have a certain improvement in business conditions,etc.Although our public sports facilities after years of reform,but its management system is a long term change without leather,The performance of its existing main problem is a serious drain on state-owned assets,supervision vacancy;more government intervention,government affairs,too much redundancy,consumer spending serious;operating revenue weakness,a serious burden on government finances;investor in place,incentive mechanism is not perfect;the management of personnel affairs and management of assets relative to detached;decentralized management,duplication of public sports facilities the construction and operation of a serious backward,operating costs are too high and so on.
2.Sport and culture has many similarities,the cultural system of public sports facilities management system with a strong inspiration.The successful experience of enlightenment and cultural reform of public sports facilities should adhere to classification reform,division of public welfare,mixed and operation of sports facilities.Develop the market main body,commission or authorized to operate;build sport facilities system of state-owned assets;the strengthening of the reform of the internal operation mechanism and to seek policy support,to support the development of sports facilities.
3.Classification of public sports facilities in China the need for reform is reflected in public sports stadium management system status and change of government functions and classify the urgent need for reform,At the same time classification reform the public sports facilities to further develop and implement the scientific management of their needs,but also the reform of public sports facilities and other institutions are the necessary requirements,etc.Classification of public sports facilities reform and its direction of reform mainly involve a question of choice and the privatization of public goods and other issues with the government functions,Therefore,the theoretical basis for its reform include public goods theory,theory and the privatization of governance and new public management theory.According to public sports facilities of the functions of the nature of the tasks will be divided into public welfare of public sports facilities,commercial and mixed-sports facilities,One public service in order to provide the masses of the major sport facilities or sports training and sports services mainly its services with strong properties of pure public goods,operating sports facilities services or to provide competitive performance in high-end fitness and entertainment service oriented.Public welfare above classification does not mean that sport facilities do not provide operating services,public service can still provide the operating sports facilities sports services,but only a low proportion.
4.Due to the traditional public management system and the impact of sport facilities has long been China’s neglect of public sports facilities possession,use of state-owned assets management,led to the current Chinese state-owned assets management of public sports facilities exist in the conduct of public affairs,political capital,management office,regardless,administrative-based management-based.Regulation in place,a serious loss of state assets;property vague,lacked capital contributors;the management of personnel affairs and management of assets relative to detached;state-owned assets management system is not perfect,the lack of binding mechanisms and facilities such as inefficient useof state-owned assets many problems.
5.China’s current reform of the system of public sports facilities supporting the status quo and problems mainly for the difference in a multi-funding institutions,a high degree of dependence on the financial allocations,staff work and welfare expenditures for the major expenditure of public sports facilities,consumer spending too much,the wage distribution to the allocation of positions and seniority-based,performance-based pay system is not well established,wages hardly reflect the incentive mechanism,most facilities appointment system implemented reforms,However,some a mere formality,the staff of tertiary graduates to the main source of diversification,the majority offacilities appropriate resettlement of redundant personnel,pension insurance,endowment insurance companies to government organizations and institutions,business support policy is not in place and so on.Science and technology,cultural institutions supporting reform of the system of public sports facilities supporting institutional reform of the Enlightenment is mainly manifested in the country should be unified deployment,overall progress,the initial pilot projects,to explore the experience of expressly supporting institutional reform of the system design and introduce the corresponding policies to support,classification reform,different types of public sports facilities should adopt different matching system design and so on.Supporting China’s reform of the system of public sports facilities include the main elements of the reform of personnel system,distribution system reform,social security system reform,personnel shunt placement,state-owned asset disposal,policy support and reform of internal governance mechanisms and so on.
6.The complexity of the reform of public sports facilities of asking the Government to strengthen supervision in order to promote the smooth progress of its reform,while the sports service characteristics of the quasi-public goods and asymmetric information,as well as the reform of the profit-driven stadium asking the Government to step up the monitoring.The reform of public sports facilities to strengthen government regulation help to ensure the venue market-oriented reforms carried out smoothly,effectively prevent the loss of state assets,improve service performance venue,providing of high quality services to facilitate separation of government and enterprises conduct of public affairs to promote the transformation of government functions.Unity between government and enterprises conduct of public affairs,to direct administrative control of interventions,Regulatory mechanism is now a problem reflected in the regulatory agencies and facilities close,interestconvergence,regulation and supervision of the coexistence of vacancy and the offside means of a single and unreasonable and so on.Ningbo Swimming Fitness Center delegate operations successful experience in government regulation of the Revelation mainly the introduction offranchising,the introduction of competition mechanism;signed a commission contract,a clear regulatory content;focusing on the complex multi-channel public service regulation and supervision,to solve the problem of insider control,etc.The reform of public sports facilities,government should be market access and exit,continuous service,service quality and price,social benefits,the state-owned assets and standards to strengthen the supervision.
7.For classification reform,and actively promote the reform of public sports facilities matching system,strengthening of public sports facilities within the system,the establishment of the investor’s system,Clear property rights,strengthen the possession of public sports facilities,the use of state-owned assets management and supervision and the government should strengthen the reform of public sports facilities and supervision to the promotion of public sports facilities management system proposal.
Key words: the public sport facilities;the management system;state-owned Assets;supervision;reform.