政企发包:双重约束下的互联网治理模式——基于互联网信息内容治理的研究

Government-Enterprise Subcontracting:The Mode of Internet Governance under Double Constraints——A Study Based on Internet Information Governance

当前我国互联网信息内容治理领域出现了一种其他公共治理领域鲜见的现象,即以传统行政发包制为辅、以企业自我管理为主的特殊治理模式,而既有理论对于这一治理实践存在解释力上的不足。本文的目的是通过政企发包这一分析框架对其运行逻辑进行解释。基于国家网信办、文化部、工信部、国家广电总局四个部门官方网站相关资料的搜集、整理与案例分析,本文将政企发包归纳为政府部门将网络事务治理权发包给非公有制企业并附加相应激励机制、同时自己保留监督权与最终奖惩权的治理模式,其特征是不平等的权力关系、强经济激励、结果考核与经济资源控制。本文认为政企发包是政府部门在资源技术和产权安排双重约束下的理性选择,其内部遵循着特定的激励逻辑并存在相关治理成本,并推论：如果某个领域存在超大规模公共领域嵌入非公有制企业内部的现象,那么政企发包的治理模式将极有可能在该领域出现。

With the Government-Enterprise Subcontracting framework,the objective of this paper is to illustrate a special governance phenomenon. This phenomenon can be described as enterprise self-management which is supplemented by traditional administrative subcontract. It appears in China’s current Internet information governance area while is rare in other traditional public management areas. An exploratory multi-case study,involving four Chinese central departments,was conducted. The four departments are Office of the Central Cyberspace Affairs Commission(also called Cyberspace Administration of China),Ministry of Culture and Tourism of the People’s Republic of China,Ministry of Industry and Information Technology(MIIT),and State Administration of Radio and Television. Based on relevant cases,this paper summarized Government-Enterprise Subcontracting as a governance pattern that the government departments distribute network governance rights to the enterprises with corresponding incentive mechanism,while retaining the right of supervision,final reward and punishment. Its characteristics are unequal power relations,strong economic incentives,result assessment and economic resource control. The article argues that Government-Enterprise Subcontracting is the rational choice of the government departments under the double constraints of resource technology and property rights arrangement,and it has a specific incentive logic and the corresponding governance costs. The key limitation of the study is that it focuses solely on internet information governance,which makes it difficult to generalize the results to other areas. The article indicates that if there is a phenomenon of large scale public domain embedded in non-public enterprises in a certain field,then Government-Enterprise Subcontracting will most likely appear in this field.