关于项目制基层实践及政策模式的研究

Research on the Grass-roots Practice and Policy Model of Project System

项目制作为一种基层治理模式,是分税制度改革以来最重要的财政转移支付手段之一,也是各级政府部门常见公共治理手段,对于满足基层公共服务需求和增进国家公共利益有着重要的现实意义,在巩固拓展脱贫攻坚成果同乡村振兴有效衔接中发挥了重要作用。但在项目实施的全周期中,各级政府在资源配置和政策目标间互动博弈,会产生项目谋划能力不足、绩效考核机制限制县级项目分配、地方债务扩张、监管机制不完善、运维管护能力弱、运营机制还不完善等困境。为深入研究基层项目制的运行逻辑、实践困境与治理路径,本文以深度访谈、参与式观察和案例追踪的方式,研究项目承载的政策意图和其表现出的政策模式,归纳出“竞争-分配”式双向配置的分析框架。研究表明,中国地方政府在项目制下存在三种政策模式,即市场扩展与长远眼光,选择性、目的化——创造竞争优势,管制与支持这三种政策模式。本文最后从制度建设、资金使用、产业发展、营商环境、预算审议、协同配合和项目分配等方面对项目申请及分配提出政策建议。

Project system,as a grass-roots governance model,is one of the most important means of financial transfer payment since the reform of tax sharing system,and is also a common means of public governance for government departments at all levels.It has important practical significance for meeting the needs of grassroots public services and promoting the national public interests,and plays an important role in consolidating and expanding the effective connection between poverty alleviation and rural revitalization.However,in the whole cycle of project implementation,governments at all levels play an interactive game between resource allocation and policy objectives,resulting in difficulties such as insufficient project planning ability,performance appraisal mechanism limiting county-level project allocation,local debt expansion,imperfect supervision mechanism,weak operation and maintenance management and protection ability,and imperfect operation mechanism.In order to further study the operation logic,practical dilemma and governance path of the grass-roots project system,the analysis framework of“competition-distribution”two-way configuration is summarized by means of in-depth interviews,participatory observation and case tracking,and the policy intention and the policy mode manifested by the project is studied.Three policy models of market i.e.expansion and long-term vision,selectivity and purpose-creating competitive advantage,regulation and support are summarized,and policy suggestions are put forward for project application and allocation from the aspects of system construction,fund use,industrial development,business environment,budget review,coordination and project allocation.