项目制实践与基层治理转型

Practicing of Project System and Transformation of Basic-Level Governance

从官僚动员与群众动员、正式行政与半正式行政、技术治理与综合治理三个层面入手,分别探讨项目制实践中基层治理秩序达成、权力结构以及规则运行三个维度的嬗变,以此厘清当前基层治理转型的基本逻辑。项目制在基层实践中对官僚动员、正式行政和技术治理的片面强调,带来基层治理机制的深刻变革。因群众动员能力的弱化、半正式行政的变异以及综合治理空间的压缩,基层治理难以为国家与农民关系的有效构建提供体制机制支撑,项目制在实践中亦偏离制度设置初衷,而这表明项目制主导下的基层治理转型并不成功。基层治理机制的有效构建,有赖于项目制在制度设计层面的自我完善。

Starting with the three levels of bureaucratic mobilization and mass mobilization, formal administration and semi-formal administration, as well as technical governance and comprehensive governance, this article discusses and investigates the transformation of three dimensions of the realization of basic-level governance order, power structure and rule running in the practicing of project system respectively, in order to clarify the basic logic of current transformation of basic-level governance. The one-sided emphasis of project system on bureaucratic mobilization, formal administration and technical governance in basic-level practice leads to the profound reform of the mechanism of basic-level governance. Due to the reduction of the ability of mass mobilization, the aberrance of semi-formal administration and the compression of the space of comprehensive governance, it is difficult for basic-level governance to provide institutional or mechanistic support for the effective construction of the relation between the country and farmers, while the project system also departures the original intention of institutional arrangement in practice, which indicates that the transformation of basic-level governance dominated by project system is not successful. The effective construction of the mechanism of basic-level governance need to rely on the self-improvement of project system at the level of institutional design.