项目化治理:城市化进程中的县域政府行为研究

Governing Projects: Research on County-level Governments Behavior under Urbanization

近年来,中国县域城市化突飞猛进。县域政府在城市化进程中扮演着至关重要的角色。县域政府通过谋项目、争项目、建项目,搭建项目平台,以项目作为枢纽,将县域内的融资平台、企业、银行和民众等治理主体整合进入项目“治理共同体”中,撬动和统合土地、财政、金融、产业和公共服务等资源要素,激发出巨大的发展能量,快速推动县域城市化进程。对于县域政府而言,项目不仅是资金,而且是一种统合工具和思维方式。项目思维已经深深渗透到县域政府的行为之中。县域政府的项目化治理行为激活了县域体制优势,推动了县域城市化,展现出明显的公共性,但受困于政绩冲动,出现不少短期行为,潜藏着财政、金融和社会风险。

In recent years,urbanization at the county level in China has made astounding advances,and county-level governments have played a crucial role in this process. The county-level government first builds a construction platform by designing,competing for and implementing projects;then uses this platform as an intermediary to integrate other governing bodies such as capital,enterprises,banks and people into a “community of project governance”;then mobilizes resource elements such as land,fiscal and financial resources,local industries and public services through this community. It bursts out strong vitality and propels rapid local urbanization. For county-level governments,project means not only funding,but more importantly an intermediary of resource integration. Governing projects has become an approach of county governance. The project-based governance approach has deeply embedded in county-level governments’ administrative behaviors. It has given full play of the institutional advantages of counties,and has promoted the county urbanization. However,this urbanization process is still plagued with short-term behavior due to the impulse of political performance,which lurks fiscal,financial and social risks.