Wicked problems have emerged as a focal point in policy research, with project-based governance representing a conventional approach to address these issues. Taking the defense of blue sky and clear water in H province as case study, this paper tries to reveal the logic of policy implementation in the project-based governance for wicked problems, and analyzes the generative mechanisms of “compliance-adaptation” implementation, so as to explain how the project system fosters effective governance of such challenges. Through a multi-case analysis, we discover that the project system enhances constraints on means and processes during policy implementation. The interaction between project goals and policy objectives facilitates a two-stage implementation process. We categorize“compliance-adaptation” implementation into four types based on the variables of tool suitability and resource adequacy. The double-edged sword effect, along with institutional arrangements, elucidates the generative mechanisms of “compliance-adaptation” implementation. While the project system addresses dilemmas associated with wicked problems—such as insufficient information, resources, and motivation—it also introduces challenges like adaptability risks, project fragmentation, and structural resource shortages, which may undermine the overall effectiveness of governance. Effective adaptive implementation, aimed at achieving policy objectives, relies on specific institutional arrangements. The “compliance-adaptation” implementation reveals the complexity theory implication within the project-based governance for wicked problems.

棘手问题是政策研究的新热点,项目制是我国治理棘手问题的常规路径。文章以 H 省蓝天碧水保卫战为例,试图揭示棘手问题项目制治理中的政策执行逻辑,剖析 “遵从 调适”执行的生成机理,以回应项目制何以助推棘手问题的有效治理。基于多案例分析发现:项目制增强了政策执行的手段和过程约束,项目目标与政策目标双轮驱动,形成从 “遵从”到 “调适”的两阶段执行模式。根据工具适配性和资源充分性变量,“遵从 调适”执行可以分为四种类型。“双刃剑效应”和制度性安排诠释了 “遵从 调适”执行的生成机理。项目制有助于消解棘手问题信息、资源和动机不足等治理困境,但衍生出适配性风险、项目碎片化、资源结构性短缺等新问题,产生治理有效性的张力;旨在实现政策目标的调适执行是以特定的制度安排为前提条件。“遵从 调适”执行体现棘手问题项目制治理场域中政策执行的复杂性理论意蕴。