项目制运行过程中“示范”断裂现象及其解释

The Phenomenon and Explanation of Demonstration Fracture in Project System's Operational Process

中国试点工作呈现出"示范"断裂现象,即造点容易、推广难。"示范"断裂现象的发生,不仅因为选点不科学、操之过急或者综合配套试点不足、后济乏力,还在于中国宏观制度环境与中观制度安排下的微观政府行为异化。本文通过制度分析方法研究发现"示范"断裂具有多重逻辑,宏观制度环境和中观制度安排提供了示范点建立的激励机制、示范失效的断裂机制以及路径依赖的强化机制,而示范断裂主要存在于资金链条断裂、科层运作断裂和集体行动断裂等多个环节中。国家治理、财政体制等集中式制度环境与统一目标、专款专用、配套资金、技术治理的项目制制度安排对地方政府"示范"工作的实施都产生了影响,且项目目标与科层目标间的张力是根本性矛盾。项目制制度安排为地方政府乐于"造点"、疲于"推广"提供了激励,而集中制环境对"示范"断裂予以路径强化,使得"示范"断裂现象常态化。

Pilot work in China presents the phenomenon of demonstration fracture, which is easy to create demonstration sites, while hard to generalize them.The occurrence of demonstration fracture is not only be-cause unscientific sites chosen, or lack of comprehensive coordinated demonstration sites, but also on account of the microscopic government behavior dissimilation under Chinese macroscopic institutional environment and mesoscopic institutional arrangement.This article finds that demonstration fracture includes multiple-logic. With the research of institutional analysis, we find that macroscopic institutional environment and mesoscopic institutional arrangement provide incentive mechanism of creating demonstration sites, fracture mechanism of demonstration failure, and strengthening mechanism of path dependence.Demonstration fracture mainly exists in multi-segments of capital chain breaking, hierarchical operation breaking and collective action breaking. Researches show that centralized institutional environment of national governance, financial systems, and pro-ject system institutional arrangements of unified objective, earmarked fund, matched capital, technology gov-ernance have effects on the conduct of local government’ s demonstration work.The tension between project objective and hierarchical objective is fundamental contradiction.Project system institutional arrangements pro-vide the stimulation for local government to create but not generalize demonstration sites, and centralized envi-ronment strengthens the demonstration fracture, making the demonstration fracture phenomenon normalization.