当代中国项目制的核心机制和逻辑困境——兼论整体性公共政策困境的消解

Key Mechanisms and Logic Dilemma of Project System in Contemporary China:On Resolution of Overall Problems of Public Policy

项目制已成为当代中国一种新的治理模式。项目制在经济发展中扮演了重要角色后,被复制到公共服务领域。本质上,项目制包含纵向控制和横向竞争两大制度精神。从政策制定、政策执行和政策评估的政策过程角度来说,项目制依次展现了事本主义的制定机制、政策变通的执行机制和作为评估机制的目标管理责任制三大核心机制,在运作过程中产生了三大逻辑悖论:事本主义逻辑与公共服务弥散性的张力、变通式执行与精细化要求的张力和公众对公共产品和服务的真实需求与目标管理责任制的张力。这也是中国整体性公共政策的困境所在,需要国家加强顶层设计,在公共政策全过程吸纳公众参与,建立督查机制,推动合作治理予以消解。

The project system has become a new mode of governance in contemporary China, which has been copied in the provision of public goods after its success in economic development. Vertical control and horizontal competition are two institutional spirits of the project system in nature. From the perspective of policy process including policy-making, policy implementation and policy evaluation, the project system demonstrates the policy-making mechanism of the doctrine of the matter, the implementation mechanism of policy adaptation and the responsibility system for achieving given targets as evaluation mechanism respectively, which lead to three logic dilemmas, that is, the tension between the doctrine of the matter and the diffused nature of public services, the tension between implementation adaptation and requirements for professional policy implementation, and the tension between real demands for public goods and service of the public and the responsibility system for achieving given targets, which are also the overall problems of policies in contemporary China. As a result, a comprehensive planning for collaborative governance by the central government including public participation in all stages of public policy and the establishment of supervision mechanisms is called for.