Improvement оf the methodology of estimation of efficiency of targeted state and municipal programs

Abstract

The transformation of program-target management into a basic approach in the formation of budgets at all levels of territorial management in the Russian Federation makes the task of evaluating the effectiveness of target programs urgent. In the Russian practice, such assessment is mainly based on the degree of achievement of the expected results of the program and compliance with budgetary expenditures for the implementation of the program activities. At the same time, a review of modern theoretical and methodological approaches to the evaluation of target programs that have evolved in domestic and foreign practice has shown that, despite being informative, these types of assessments do not allow to evaluate the effectiveness of the implementation of target programs, to determine the contribution of programs to the economic and social progress of the municipality, the region, the country as a whole. In this connection, the study substantiates the need to improve the methodology of program evaluation by supplementing the "internal" analysis of target programs with an "external" assessment of their impact on the achievement of target indicators of territorial social and economic development for the period of budget planning. Methodologically the research is based on a complex of methods of logical, systemic, comparative and statistical analysis. The scientific novelty of the methodology proposed by the authors for evaluating the effectiveness of targeted programs is as follows. First, as part of the program evaluation indicators, it was suggested to use a set of indicators reflecting the degree of attractiveness of the territory as a place suitable for living and working. Secondly, a system of dynamic standards has been developed that reflect the reference trajectory of changes in the indicators of the socio-economic development of the territory. Thirdly, in the evaluation of target programs, it has been justified to take into account the deviations of actual indicators of the social and economic development of the territory from dynamic standards. The Spearman rank correlation coefficient has been suggested to be taken as a tool for analyzing deviations. Fourthly, the possible application of the approach of using “external” assessment of the program impact on the social and economic development of systems characterized by different level of hierarchy (countries, regions, cities and towns) suggested by the authors has been proven. Proposals of authors on the use of "external" evaluation of programs have been tested on the example of state programs of the Russian Federation, Perm Krai and municipal programs of the city of Perm for 2015‒2017. Further directions of the research include clarification of the indicators of the "external" evaluation of target programs and the mechanism of their influence on the development of the corresponding territorial system.

Keywords

state and municipal target program, approaches to program assessment, indicators and criteria of program assessment, Spearman coefficient, impact of programs on target indicators of territory development

For citation

Elokhov А.М., Arbuzova T.A. Improvement оf the methodology of estimation of efficiency of targeted state and municipal programs. Perm University Herald. Economy, 2018, vol. 13, no. 3, pp. 402–415. DOI 10.17072/1994-9960-2018-3-402-415

References

1. Leksin V.N., Shvetsov A.N. Gosudarstvo i regiony. Teoriya i praktika gosudarstvennogo regulirovaniya territorial'nogo razvitiya [State and regions. Theory and practice of state regulation of territory development]. Moscow, URSS Publ., 2000. 368 p. (In Russian).
2. Elokhov A.M, Arbuzova T.A. Programmno-tselevoe territorial'noe upravlenie [Program – target territorial management]. Perm, Perm. gos. nat. iss. un-t Publ., 2018. 236 p. (In Russian).
3. Franklin J.L., Thrasher J.H., An introduction to program evaluation. New York, Wiley & Sons, 1976. 233 p.
4. Gramlich E. Benefit-cost analysis of government programs. Englewood Cliffs, New Jersey, Prentice Hall, 1981. 273 р.
5. Mishan E. J. Cost – benefit analysis. London, George Allen & Unwin Publ., 1984. 222 р.
6. Scriven M. Evaluation thesaurus. 4th ed. Newbury Park, California, Sage, 1991. 393 р.
7. Weiss C. Evaluation: Methods for studying programs and policies. 2nd ed. Prentice Hall, 1998. 372 p.
8. Patton M.Q. Qualitative evaluation and research methods. 3rd ed. Thousand Oaks, CA, Sage Publications, 2002. 317 р.
9. Garadzha M.Yu. Monitoring rezul'tativnosti byudzhetnykh raskhodov: osnovnye etapy vnedreniya na mestnom urovne [Monitoring of budget expenditures efficiency]. Moscow, Fond “Institut ekonomiki goroda” Publ., 2002. 48 p. (In Russian).
10. Hatry H.P. Monitoring rezul'tativnosti v obshchestvennom sektore Per. s angl. [Efficiency monitoring in public sector]. Transl. from Engl. Moscow, Fond “Institut ekonomiki goroda” Publ., 2005. 276 p. (In Russian).
11. Peacock S. An evaluation of program budgeting and marginal analysis applied in South Australian hospitals. Melbourne, Centre for health program evaluation, 2008. 128 p.
12. Miller G.I., Hildreth W.B., Rabin J. Performance-based budgeting. Boulder, Colorado, Westview Press, 2010. 504 p.
13. Vanclay F., Esteves A.M., Aucamp I., Franks D. Social impact assessment: Guidance for assessing and managing the social impacts of projects. Fargo, ND, International association for impact, 2015. 108 p.
14. Kuz'min A. A. Osobennosti provedeniya otdel'nykh etapov otsenki proektov i programm [Features of assessment of particular stages of projects and programs]. Materialy dlya shkoly po otsenke programm [Resources for schools assessing programs], 2001. (In Russian). Available at: http://www.ipen21.org/ipen (accessed 19.04.2018).
15. Vetrov G.Yu., Vizgalov D.V., Pinegina M.V., Shevyrova N. I. Otsenka munitsipal'nykh programm [Municipal program assessment]. Moscow, Fond “Institut ekonomiki goroda” Publ., 2003. 89 p. (In Russian).
16. Vizgalov D.V. Metody otsenki munitsipal'nykh programm [Methods for municipal program assessment]. Moscow, Fond “Institut ekonomiki goroda” Publ., 2005. 108 p. (In Russian).
17. Elokhov A.M. Strategicheskoe upravlenie razvitiem munitsipal'nogo obrazovaniya [Strategic management of municipal education development]. Perm, Perm. gos. un-t Publ., 2007. 175 p. (In Russian).
18. Shakina E.A. Mnogourovnevaya otsenka tselevykh programm kak metod upravleniya raskhodami regional'nykh i munitsipal'nykh byudzhetov. Avtoref. diss. kand. ekon. nauk [Multilevel assessment of target programs as a method to control regional and municipal budget costs. Cand. econ. sci. author. diss.]. Moscow, 2008. 27 p. (In Russian).
19. Il'ichev A.V. Osnovy analiza effektivnosti i riskov tselevykh programm: istoki, formalizatsiya, realizatsiya [Analysis fundamentals of assessment and risks of target programs: Origin, formalization and implementation]. Moscow, Nauchnyi mir Publ., 2009. 332 p. (In Russian).
20. Minchenko O.S. Podkhody k otsenke tselevykh programm v rossiiskoi praktike [Approaches to the target program assessment in Russian practice]. Voprosy upravleniya [Management Issues], 2012, no. 2 (21), pp. 14–20. (In Russian).
21. Afanas'ev M.P., Shash N.N. Instrumentarii otsenki effektivnosti byudzhetnykh programm [Assessment methodologies of the state-funded program efficiency]. Voprosy gosudarstvennogo i munitsipal'nogo upravleniya [Public Administration Issues], 2013, no. 3, pp. 48–69. (In Russian).
22. Alabina T.A., Ershova N.N. Otsenka effektivnosti dolgosrochnykh tselevykh programm: teoriya i praktika (na primere Kemerovskoi oblasti) [Efficiency assessment of long-term target programs: Theory and practice (in the case study of Kemerovo region]. Barnaul, Si–press Publ., 2014. 146 p. (In Russian).
23. Patrakhina T.N. Podkhody k otsenke effektivnosti gosudarstvennykh tselevykh programm [Approaches to assess efficiency of public target programs]. Problemy ekonomiki i menedzhmenta [Economy and Management Issues], 2015, no. 2 (42), pp. 65–68. (In Russian).
24. Nozhenko D.Yu. Gosudarstvennye programmy kak instrument strategicheskogo upravleniya: mezhregional'nyi analiz [Government programs as a tool for strategic management: An interregional analysis]. Voprosy upravleniya [Management Issues], 2016, no. 4 (41), pp. 8–15. (In Russian).
25. Korableva A.A. Metodicheskie osnovy otsenki effektivnosti munitsipal'nykh programm [Methodological foundations to assess the efficiency of municipal programs]. Regional'naya ekonomika: teoriya i praktika [Regional Economics: Theory and Practice], 2017, vol. 15, iss. 4 (439), pp. 691–705. (In Russian).
26. Gershanok A.A., Elokhov A.M. Metodika vneshnei otsenki vliyaniya tselevykh programm na napravlenie razvitiya territorii [Methods of external assessment of target program impact on territory development trends]. Ekonomika i menedzhment sistem upravleniya [Economy and Management of Management Systems], 2018, no. 2.3 (28), pp. 338–347. (In Russian).

Show full text