纵向吸纳:项目资金运作社会化及其基层治理风险  

Vertical Absorption:Socialization of Project Fund Operations and Grassroots Governance Risks

作　　者：刘秋文 孙迎联[1] LIU Qiuwen;SUN Yinglian(School of Marxism,Southeast University)

机构地区：[1]东南大学马克思主义学院

出　　处：《公共管理评论》2024年第2期283-296,共14页China Public Administration Review

基　　金：国家社会科学基金项目“乡村振兴战略赋能农民持续增收的机制构建研究”(项目批准号:22BKS142)资助。

摘　　要：项目制作为一种从中央直达基层社会的新型国家治理体制,为了确保中央意志的贯彻执行,其资金具有财政自上而下拨付、专款专用、单独核算的专项化管理特性。田野调查发现,县级政府通过纵向吸纳具有半行政化属性的村干部与村级组织转嫁项目资金,突破项目资金专项化制度管理,形成了项目资金运作社会化的新现象。具体而言,县级政府在政绩激励和财政短缺的压力下对项目财权和事权进行捆绑发包,村干部在政治动员和经济利益驱动下“主动”承接项目资金。但由于项目资金量超出村干部个人承受能力,在村干部个人资产担保下地方商业银行向其提供借贷资金;囿于政府财政支付压力,县级政府延期、分期支付村干部私人垫付的项目资金。经由半行政化的村干部这一中介体,项目资金从财政资金转化为村干部个人银行债务,完成了从专项化管理到社会化筹资、财政担保偿还的社会化运作转变。在项目资金纵向吸纳中,基层政府与村干部形成了紧密的联系,使基层治理关系异化,形塑了治理同盟关系。这使得基层在落实国家政策时有了变通执行、便宜行事的空间,同时威胁了国家项目资源安全,项目监管形式化。在村庄层面则产生项目资源分配“强者吸纳”效应,形成强者愈强、弱者愈弱的发展趋势。This project presents a new type of national governance system that extends directly from the central government to grassroots society.In order to ensure implementation of the will of the Center,its funds have the characteristics of specialized management,including top-down financial allocations,dedicated funds,and separate accounts.Field investigations have found that county-level governments have broken through the specialized management system of project funds by vertically absorbing semi-administrative village cadres and village-level organizations to transfer project funds,forming a new phenomenon of socialized operations of project funds.Specifically,under pressure from performance incentives and financial shortages,county-level governments bundle project financial and administrative rights,and village cadres take the initiative to undertake project funds through political mobilization and economic interests.Due to the project funding exceeding the individual capacity of village cadres,local commercial banks provide loan funds to advance project payments to village cadres under personal asset guarantees.Due to financial pressures from the government,county-level governments adopt deferred and installment payment methods to pay project funds that are privately advanced by village cadres.Through the semi-administrative intermediary of village cadres,project funds are transformed from fiscal funds to personal bank debts of village cadres,completing the transformation from specialized management to socialized financing and repayment of financial guarantees.Although the scale of project funds for socialized operations is very small compared to total infrastructure expenditures,it represents a new source of project funds-local governments breaking through the national project system and transferring construction funds to village-level organizations and individuals.The resultant dependence of county and rural interests has a more profound impact on local ecological governance.In the vertical absorption of project

关 键 词：纵向吸纳 项目资金运作 社会化运作 基层治理风险 

分 类 号：F283[经济管理—国民经济]