科层为体、项目为用:一个中央项目运作的组织探讨  

“Bureaucratized” Project System:An Organizational Study of Chinese Central Government Sponsored Projects

作　　者：史普原[1] 

机构地区：[1]南开大学周恩来政府管理学院

出　　处：《社会》2015年第5期25-59,共35页Chinese Journal of Sociology

基　　金：国家留学基金委\[2012\]3013号;中国博士后科学基金第57批面上资助项目(2015M570223)的支持~~

摘　　要：当前中国政府组织中项目泛滥,其运作往往离不开科层体制,要想深入理解项目运作,就要探讨它与科层制的复杂关系。立足于基础性组织理论,本文提炼出项目制的三重构成要素,并与科层制进行比较,勾勒出两者之间的关系,尤其是看似融合背后的张力。这种张力体现在:项目统一规划与科层条线传递之间的张力;项目的时段性与科层的常态性之间的张力;项目的目标导向与科层的规则导向之间的张力。在当前政府科层体制缺乏有效外部约束、项目发包方与需求方隔离过远等条件下,这种张力体现得淋漓尽致,呈现出"科层为体、项目为用"式的项目运作机制。本文以中央农口项目的整合为案例,指出这项中央、省级和基层均有意为之的变革最终失败的根本原因就来自上述系统性张力。本文通过对多级科层组织策略实践的考察,具体而微地刻画了这种张力的表现形式。In recent years, the proliferation of central governmental projects has been taking place within the government bureaucracy. In order for us to understand this phenomenon, we need to examine both the Chinese bureaucracy and the project operation system. This article proposes three key features of the project operation system. They are features of temporarily, goal-oriented, and flexible plus innovative. A comparison of these features with the three basic elements of bureaucracy shows that underneath the superficial fusion of the two system there are unavoidable tensions. Given the fact that the Chinese bureaucracy lacks of structural constraints and public participation in its decision making process, projects seldom meet the target of appropriate supply- demand equation. Tensions are particularly manifested in two areas： （1） projects are inter-departmental and temporary in nature while bureaucracy is always rigid and insulate; （2） projects are goal-orientated and flexible while bureaucracy is rule-oriented and hierarchical. At most time, central governmental projects have to operate under the government bureaucracy, thus we call the system ＂ Bureaucratized＂ Project System. Bureaucracy is strengthened rather than weakened by the current project system. In our case study, we find that the bureaucracy resists the project integration reform because its power is being threatened even it is apparently beneficial for project operations. We are not optimistic about the future of the project integration reform as the task is now laid upon the over-loaded and wrongly-motivated local governments while the state bureaucracy remains all powerful.

关 键 词：项目制 科层制 张力 条块 整合 

分 类 号：D630[政治法律—政治学]