跨域治理視角下的中國式流域治理模式分析
發(fā)布時間：2019-06-11 04:01
【摘要】：隨著全球經(jīng)濟(jì)化、區(qū)域一體化、工業(yè)化、城市化等各方面的發(fā)展和進(jìn)步,日趨復(fù)雜的跨域公共事務(wù)不斷凸顯。權(quán)威體系下的中央與地方政府,需要處理比以往更多更復(fù)雜的事務(wù),傳統(tǒng)公共管理視角下的治理模式出現(xiàn)大量的制度失靈。政府由面對區(qū)域內(nèi)單一的行政問題(如教育、文化、經(jīng)濟(jì)發(fā)展等)轉(zhuǎn)向面對復(fù)雜的跨部門、跨區(qū)域事務(wù)的各種問題(如流域問題、環(huán)境保護(hù)、交通規(guī)劃等),其作用范圍和治理方式也進(jìn)行了重新界定,政府必須結(jié)合企業(yè)、公民社會等多方面的綜合力量,應(yīng)對復(fù)雜多變的外部環(huán)境,提升公共服務(wù)能力。 在跨域治理理論的視角下,流域治理作為典型代表,具有跨越邊界的外部性、不可分割的公共性、政治性、層次性等特點(diǎn)�？偟膩碚f,流域治理已從各自為政的行政區(qū)域管理向尊重流域自然屬性的合作管理發(fā)展,從多部門間的分割管理或者單一部門的統(tǒng)一管理,向以一個部門為主導(dǎo)與多部門合作管理相結(jié)合的模式發(fā)展。但不同范圍的流域在結(jié)合相應(yīng)的政治制度、經(jīng)濟(jì)體制、社會發(fā)展?fàn)顩r等因素后表現(xiàn)出不同的側(cè)重點(diǎn),本文以淮河流域、山東省“兩湖一河”、濟(jì)南城市河道的治理實(shí)踐為例,從國內(nèi)跨省域、跨市不跨省、市域內(nèi)不同區(qū)和縣三個層面,分析了我國在處理流域這一類公共問題時的方式及面臨的困境,研究治理流域問題的組織結(jié)構(gòu)、政策工具和機(jī)制安排,總結(jié)出中國式流域治理模式呈現(xiàn)出明顯的層級差異,在宏觀層面是中央調(diào)控下的派出機(jī)構(gòu)層級管控模式,在中觀層面則主要表現(xiàn)為省政府調(diào)控下的地方政府協(xié)調(diào)模式,在微觀內(nèi)的流域治理主要為城市政府主導(dǎo)下的層級考核模式�？傮w而言,我國的現(xiàn)實(shí)情況決定了中國式流域治理目前仍然是以政府為主導(dǎo),呈現(xiàn)出對層級組織的高度依賴、部門協(xié)調(diào)不暢、社會組織自主性和公民社會的參與遠(yuǎn)遠(yuǎn)不足等特點(diǎn),這也體現(xiàn)了跨域治理理論在當(dāng)下應(yīng)用中的限制。 在厘清我國政府體制環(huán)境的基礎(chǔ)上,對中國式流域治理模式給予整體上的考慮,發(fā)現(xiàn)中央政府具有統(tǒng)領(lǐng)全局的作用,不管是政策逐級下放的過程,還是部門分工協(xié)調(diào)的過程,都要依靠黨中央的“高位推動”,以層級性治理和多屬性治理相結(jié)合共同實(shí)現(xiàn)流域治理目標(biāo)。流域治理模式作為多元主體共同實(shí)現(xiàn)水資源管理的制度架構(gòu),想保證治理模式的永續(xù)經(jīng)營,就需要一套系統(tǒng)的機(jī)制加以保障。文章梳理了科層型治理機(jī)制、市場型治理機(jī)制以及伙伴型治理機(jī)制的框架,試圖借助我們的專業(yè)背景,通過邏輯上的分析,為實(shí)踐者理清思路的局限,尋找更為行之有效的解決方案。
[Abstract]:With the development and progress of global economy, regional integration, industrialization, urbanization and so on, the increasingly complex cross-domain public affairs are becoming more and more prominent. The central and local governments under the authority system need to deal with more and more complex affairs than ever before, and a large number of institutional failures appear in the governance model from the perspective of traditional public management. The government has changed from facing a single administrative problem in the region (such as education, culture, economic development, etc.) to facing complex cross-sectoral and cross-regional issues (such as watershed issues, environmental protection, traffic planning, etc.). The scope of its function and the way of governance have also been redefined. The government must combine the comprehensive forces of enterprises, civil society and other aspects to cope with the complex and changeable external environment and improve the ability of public service. From the perspective of cross-regional governance theory, watershed management, as a typical representative, has the characteristics of externality across borders, inseparable publicity, politics, hierarchy and so on. Generally speaking, watershed management has developed from separate administrative regional management to cooperative management that respects the natural attributes of the river basin, from multi-department divided management or unified management of a single department. To take one department as the leading and the multi-department cooperation management unifies the development model. However, different watersheds show different emphasis after combining the corresponding political system, economic system, social development and other factors. This paper takes the Huaihe River Basin, Shandong Province, "two lakes and one river", Jinan urban river management practice as an example. This paper analyzes the ways and difficulties of dealing with this kind of public problems in our country from three levels: cross-provincial, cross-city and non-provincial, and different districts and counties in the city, and studies the organizational structure of river basin management. According to the policy tools and institutional arrangements, it is concluded that the Chinese watershed management model shows obvious hierarchical differences, and at the macro level, it is the hierarchical management and control model of the dispatched agencies under the central control. At the meso level, it is mainly manifested in the local government coordination model under the control of the provincial government, and the watershed management in the micro level is mainly the hierarchical assessment model led by the urban government. Generally speaking, the reality of our country determines that the Chinese watershed management is still dominated by the government, showing a high degree of dependence on hierarchical organizations, and the coordination of departments is not smooth. The autonomy of social organization and the participation of civil society are far from enough, which also reflects the limitations of cross-domain governance theory in the current application. On the basis of clarifying the institutional environment of our government, this paper gives the overall consideration to the Chinese watershed management model, and finds that the central government plays a leading role in the overall situation, whether it is the process of decentralization of policies step by step or the process of division of labor and coordination among departments. We should rely on the "high promotion" of the Party Central Committee and realize the goal of watershed management by combining hierarchical management with multi-attribute management. Watershed management model, as the institutional framework of water resources management jointly realized by multiple subjects, needs a set of systematic mechanisms to guarantee the sustainable management of the management model. This paper combs the framework of hierarchical governance mechanism, market governance mechanism and partner governance mechanism, and tries to clarify the limitations of thinking for practitioners with the help of our professional background and logical analysis. Find a more effective solution.
【學(xué)位授予單位】：山東大學(xué)
【學(xué)位級別】：碩士
【學(xué)位授予年份】：2014
【分類號】：D630
本文編號：2496995
[Abstract]:With the development and progress of global economy, regional integration, industrialization, urbanization and so on, the increasingly complex cross-domain public affairs are becoming more and more prominent. The central and local governments under the authority system need to deal with more and more complex affairs than ever before, and a large number of institutional failures appear in the governance model from the perspective of traditional public management. The government has changed from facing a single administrative problem in the region (such as education, culture, economic development, etc.) to facing complex cross-sectoral and cross-regional issues (such as watershed issues, environmental protection, traffic planning, etc.). The scope of its function and the way of governance have also been redefined. The government must combine the comprehensive forces of enterprises, civil society and other aspects to cope with the complex and changeable external environment and improve the ability of public service. From the perspective of cross-regional governance theory, watershed management, as a typical representative, has the characteristics of externality across borders, inseparable publicity, politics, hierarchy and so on. Generally speaking, watershed management has developed from separate administrative regional management to cooperative management that respects the natural attributes of the river basin, from multi-department divided management or unified management of a single department. To take one department as the leading and the multi-department cooperation management unifies the development model. However, different watersheds show different emphasis after combining the corresponding political system, economic system, social development and other factors. This paper takes the Huaihe River Basin, Shandong Province, "two lakes and one river", Jinan urban river management practice as an example. This paper analyzes the ways and difficulties of dealing with this kind of public problems in our country from three levels: cross-provincial, cross-city and non-provincial, and different districts and counties in the city, and studies the organizational structure of river basin management. According to the policy tools and institutional arrangements, it is concluded that the Chinese watershed management model shows obvious hierarchical differences, and at the macro level, it is the hierarchical management and control model of the dispatched agencies under the central control. At the meso level, it is mainly manifested in the local government coordination model under the control of the provincial government, and the watershed management in the micro level is mainly the hierarchical assessment model led by the urban government. Generally speaking, the reality of our country determines that the Chinese watershed management is still dominated by the government, showing a high degree of dependence on hierarchical organizations, and the coordination of departments is not smooth. The autonomy of social organization and the participation of civil society are far from enough, which also reflects the limitations of cross-domain governance theory in the current application. On the basis of clarifying the institutional environment of our government, this paper gives the overall consideration to the Chinese watershed management model, and finds that the central government plays a leading role in the overall situation, whether it is the process of decentralization of policies step by step or the process of division of labor and coordination among departments. We should rely on the "high promotion" of the Party Central Committee and realize the goal of watershed management by combining hierarchical management with multi-attribute management. Watershed management model, as the institutional framework of water resources management jointly realized by multiple subjects, needs a set of systematic mechanisms to guarantee the sustainable management of the management model. This paper combs the framework of hierarchical governance mechanism, market governance mechanism and partner governance mechanism, and tries to clarify the limitations of thinking for practitioners with the help of our professional background and logical analysis. Find a more effective solution.
【學(xué)位授予單位】：山東大學(xué)
【學(xué)位級別】：碩士
【學(xué)位授予年份】：2014
【分類號】：D630
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