“总体支配”到“技术治理”:“项目制”的运行机制

From “Overall Control” to “Technical Governance”: The Operational Mechanism of “Project-Based System”

党的十九届四中全会强调,坚持和完善中国特色社会主义制度、推进国家治理体系和治理能力现代化,是全党的一项重大战略任务。回望历史长河,我国的国家治理模式自古以来都是以总体支配策略为主,强调国家对资源的控制,支配城乡居民的生存和发展。改革开放后,国家治理模式逐渐由传统的政府主导型转变为以公共服务为本的治理模式。在这一转变中,法治化、标准化、技术化以及理性化等原则已经成为中国行政建设的核心议题,也是中国治理现代化的关键议程所在。项目制打破了传统科层制中的条线运作逻辑,成为近十年来我国社会治理体系中一个极为独特的现象。本文主要分析“项目制”的产生原因、运作机制,研究各行为主体在项目制中所扮演的角色以及行动逻辑,以期理解项目制成为社会治理主要手段的深层原因。在此基础上,结合社会治理实践,分析项目制在社会治理中的实际效果,进一步认识项目治理的成效与限度。

The Fourth Plenary Session of the 19th Central Committee of the Communist Party of China emphasized that upholding and improving the socialist system with Chinese characteristics and promoting the modernization of the national governance system and governance capabilities are a major strategic task for the entire party. Looking back at the long history, China’s national governance model has been based on the overall dominance strategy since ancient times, emphasizing the state’s control of resources and controlling the survival and development of urban and rural residents. After the reform and opening up, the national governance model gradually changed from the traditional government-led model to a public service-oriented governance model. In this transformation, principles such as legalization, standardization, technology, and rationalization have become core issues in China’s administrative construction and a key agenda for China’s governance modernization. The project-based system breaks the operational logic of the traditional bureaucracy and has become an extremely unique phenomenon in China’s social governance system in the past decade. This article mainly analyzes the causes and operating mechanisms of the “project-based system”, and studies the roles and action logic of each actor in the project-based system, in order to understand the underlying reasons why the project-based system has become the main means of social governance. On this basis, combined with social governance practice, the actual effect of the project-based system in social governance is analyzed, and the effectiveness and limits of project-based governance are further understood.