“马拉松霾”到“APEC蓝”：大气污染运动式治理的反思

发布时间：2018-12-12 15:44

【摘要】：运动式治理作为中国的特色治理模式,是政府集中力量解决突发事件和社会管理疑难问题的重要手段,具有主体权威性、客体特定性、方式运动性、结果反弹性等特征,并不是所有国家都需要,也不是所有国家都能发动,它具有独特的触发机制和运作流程。改革开放三十多年来,我国在迎来经济快速发展的同时,也遭受着越来越严重的环境问题,大气污染防治工作受到高度关注,法律保障、制度保障一一建立,却面临着常规治理手段失灵的尴尬,但当有重大活动出现需要做好空气质量保障工作时,政府却能用一些非常规的手段实现“APEC蓝”、“阅兵蓝”、“G20蓝”等显著治理成效。本文选取了京津冀及其周边地区“马拉松霾”到“APEC蓝”的大气污染运动式治理的典型案例,通过观察、分析政府在空气保障工作过程中的运作来回答两个问题:1.“马拉松霾”到“APEC蓝”的大气污染防治绩效差异显著的影响变量是什么?2.这些变量能不能变成常量,实现大气污染防治效果的可持续性?研究发现,空气质量的公共物品属性易导致大气污染防治工作出现“公地悲剧”,政府应在大气污染防治工作中承担主体责任,但由于属地政府没有动力,环保主管部门又能力不足,日常的大气污染防治工作往往流于形式。当运动式治理阶段到来后,大气污染防治工作开始受到属地政府的重视,被当成政治任务来完成,治理资源也得到再整合,大气污染防治工作受困于环保资源与力量有限的问题迎刃而解,再加上督查机制的运转,实现了“条块联动”,让中央“做好APEC会议空气质量保障工作”的决策意图得以具体化、实践化。至此,导致防治绩效差异的影响变量不言自明:议题的合法性承载和治理资源再整合。但要想把这些变量变成常量,实现大气污染防治效果的可持续性,还需要克服运动式治理不可持续、治理手段游走在合法和正义边缘、治理结果反弹、治理成本高、转嫁责任等问题,参考英国、美国、日本三个国家成功的专项治污案例,本文尝试给出了走出运动式治理困境、改进大气污染治理现状的方案:改变环境议题的合法性承载,保持大气污染防治的可持续性;加强法律和制度建设,做好大气污染防治的保障工作;整合治理资源,强化大气污染治理主体的治理能力;利用科学与技术,兼顾行政效率与社会效益;完善社会参与机制,实现公众监督与公共决策。
[Abstract]:As the characteristic governance mode of China, sports governance is an important means for the government to concentrate its efforts to solve unexpected events and difficult problems in social management. It has the characteristics of subject authority, object specificity, movability, result rebound, etc. Not all countries need, not all countries can launch, it has a unique trigger mechanism and operational processes. After more than 30 years of reform and opening up, our country has witnessed rapid economic development and at the same time suffered more and more serious environmental problems. The prevention and control of air pollution has been highly concerned, and legal and institutional safeguards have been established one by one. However, the government can use some unconventional methods to achieve the remarkable effect of "APEC blue", "parade blue", "G20 blue" and so on, when there are important activities that need to do a good job of air quality assurance. This paper selects the typical case of "Marathon Haze" to "APEC Blue" in Beijing-Tianjin-Hebei and its surrounding areas, and analyzes the operation of the government in the process of air protection by observing and answering two questions: 1. What is the significant influence variable between Marathon Haze and APEC Blue in air pollution prevention and control performance? 2. Can these variables become constant to achieve the sustainability of the prevention and control effects of air pollution? The study found that the attribute of public goods of air quality can easily lead to the "tragedy of the common land" in the prevention and control of air pollution. The government should bear the main responsibility in the prevention and control of air pollution, but because the dependency government has no motive power, The environmental protection department also lacks the ability, the daily air pollution prevention and control work is often the formality. When the stage of sports governance came, the air pollution prevention and control work began to be attached importance to by the territorial government, and was completed as a political task, and the management resources were also reintegrated. Air pollution prevention and control work is beset by the problem of limited environmental resources and power, coupled with the operation of the supervision mechanism, which realizes the "strip linkage." So that the central government "do a good job of APEC conference air quality assurance" decision-making intention to materialize and practice. At this point, the impact variables leading to the difference of prevention and control performance are self-evident: the legitimacy of the issue and governance resources re-integration. But in order to change these variables into constant and realize the sustainability of air pollution prevention and control effect, we also need to overcome the unsustainable sports governance, the means of governance walk on the edge of legitimacy and justice, the governance results rebound, and the cost of governance is high. With reference to the successful special pollution control cases of Britain, the United States and Japan, this paper tries to give a plan to improve the current situation of air pollution control and to change the legitimacy of environmental issues. Maintaining the sustainability of air pollution prevention and control; Strengthen the law and system construction, do a good job of air pollution prevention and control, integrate the resources, strengthen the control ability of the main body of air pollution control, make use of science and technology, give consideration to the administrative efficiency and social benefit; Improve the mechanism of social participation to achieve public supervision and public decision-making.
【学位授予单位】：吉林大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：X51

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