跨域治理视角下的中国式流域治理模式分析
发布时间：2019-06-11 04:01
【摘要】：随着全球经济化、区域一体化、工业化、城市化等各方面的发展和进步,日趋复杂的跨域公共事务不断凸显。权威体系下的中央与地方政府,需要处理比以往更多更复杂的事务,传统公共管理视角下的治理模式出现大量的制度失灵。政府由面对区域内单一的行政问题(如教育、文化、经济发展等)转向面对复杂的跨部门、跨区域事务的各种问题(如流域问题、环境保护、交通规划等),其作用范围和治理方式也进行了重新界定,政府必须结合企业、公民社会等多方面的综合力量,应对复杂多变的外部环境,提升公共服务能力。 在跨域治理理论的视角下,流域治理作为典型代表,具有跨越边界的外部性、不可分割的公共性、政治性、层次性等特点。总的来说,流域治理已从各自为政的行政区域管理向尊重流域自然属性的合作管理发展,从多部门间的分割管理或者单一部门的统一管理,向以一个部门为主导与多部门合作管理相结合的模式发展。但不同范围的流域在结合相应的政治制度、经济体制、社会发展状况等因素后表现出不同的侧重点,本文以淮河流域、山东省“两湖一河”、济南城市河道的治理实践为例,从国内跨省域、跨市不跨省、市域内不同区和县三个层面,分析了我国在处理流域这一类公共问题时的方式及面临的困境,研究治理流域问题的组织结构、政策工具和机制安排,总结出中国式流域治理模式呈现出明显的层级差异,在宏观层面是中央调控下的派出机构层级管控模式,在中观层面则主要表现为省政府调控下的地方政府协调模式,在微观内的流域治理主要为城市政府主导下的层级考核模式。总体而言,我国的现实情况决定了中国式流域治理目前仍然是以政府为主导,呈现出对层级组织的高度依赖、部门协调不畅、社会组织自主性和公民社会的参与远远不足等特点,这也体现了跨域治理理论在当下应用中的限制。 在厘清我国政府体制环境的基础上,对中国式流域治理模式给予整体上的考虑,发现中央政府具有统领全局的作用,不管是政策逐级下放的过程,还是部门分工协调的过程,都要依靠党中央的“高位推动”,以层级性治理和多属性治理相结合共同实现流域治理目标。流域治理模式作为多元主体共同实现水资源管理的制度架构,想保证治理模式的永续经营,就需要一套系统的机制加以保障。文章梳理了科层型治理机制、市场型治理机制以及伙伴型治理机制的框架,试图借助我们的专业背景,通过逻辑上的分析,为实践者理清思路的局限,寻找更为行之有效的解决方案。
[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.
【学位授予单位】：山东大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：D630
本文编号：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.
【学位授予单位】：山东大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：D630
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