该报告是为世界银行学院(WBI)预算流程和公共支出分析与管理课程开发的主要文本。它重点关注公共支出管理(PEM,作为解决公共资金分配这一老问题的新方法。PEM通过预算决策运作,但与传统预算有两个重要区别。首先,它补充了传统的程序规则,增加了实质性政策规范。在PEM中,政府不仅要应用正确的程序,还必须努力有效地实现预期的政策结果。其次,PEM涵盖了广泛的制度和管理安排,而不仅仅是传统上与预算相关的安排。PEM认识到,如果公共部门结构和管理不善,或者政策制定者和项目经理获得的信息和激励措施促使他们采取产生反常结果的行动,预算结果不太可能是最佳的。第一个关键区别是传统预算通过接受的程序规范运作,而PEM强调实质性结果。这些结果涉及a)总收入和支出,b)部门和项目之间的资源分配,以及c)政府机构运作的效率。为了实现积极的公共支出结果,必须正确调整信息、激励措施和其他制度安排。从传统预算到PEM的重新定位是由于许多发展中国家和发达国家公共支出结果不令人满意。一个值得考虑的关键问题是,为什么在预算过程中遵循正当程序会导致不利结果。如果健全的预算程序是PEM的组成部分,为什么从中产生的结果不应该是有利的?解决这个问题引出了PEM与传统正当程序预算方法之间的重要区别。程序规则处理预算的正式特征:决策的方式和时间、估算的结构和形式、预算的范围等。从长远来看,回答“新的预算制度是否有所不同?”的问题将取决于控制者与支出者、守护者与索赔者之间的权力平衡。
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