从制度安排到实际运行:项目制的生存逻辑与两难处境

From Institutional Arrangements to Actual Operation: Survival Logic and Dilemma of Project System

20年的分税制改革,使得以调节中央与地方事权与财权关系的项目制逐渐成为一种新的国家治理体制,在发挥财政转移支付作用的同时,项目制亦能有效地将科层制体系内外的资源集中动员起来。本文试图分析项目制从制度安排到实际运行的过程,认为项目制是依附在科层制体系上的另一套政府运行机制,正是由于依附的特征,使各级政府的政策意图都能融入项目制当中,形成项目制运行过程中的府际互动,推动项目资源在科层制体系中的有序流动。但即便如此,公共管理活动中的项目制所表现出的依附、互动特征在保证项目制生存的同时,也把项目制推向两难困境。

After the reform of tax allocation,the project system gradually became a new governance system to adjust the relationship between the central and local government. The project system played a role of fiscal transfer payment,at the same time it also can effectively mobilized and focused the resources inside and outside of bureaucracy.This article tried to explore the survival logic and dilemma of project system.And the article considered that the project system is another set of government operation mechanism which attached in bureaucracy.Because of the characteristics of the attachment,all levels of government can put their policy intentions into project system. And the characteristics also formed the interaction between governments in the process of project system running,which pushed the orderly flow of the project resources in bureaucracy.But even so,in public management activities,the characteristics of the project system formation and operation: attachment and interaction,also had many problems.