重点流域环境保护考核制度研究

发布时间：2018-05-19 11:30

本文选题：地方政府 + 重点流域　；参考：《南京大学》2017年硕士论文

【摘要】：伴随着经济的发展,我国的水环境质量经历了从局部恶化到全面恶化的过程,这其中重点流域的污染情况最为触目惊心。造成这种现象的主要原因是地方政府为了自身利益,单纯追求经济增长,环保工作长期被忽视。为将地方政府从单纯追求GDP转变到可持续发展的模式,扭转我国环境质量持续恶化的态势,中央政府出台了多项环境保护考核制度,以提升地方政府对环保工作的重视程度。这其中重点流域环境保护考核制度作为一项较早开展的环保考核制度,经历了从形成、发展再到进一步改革的演变。本文从重点流域环保考核运行情况进行研究,分析其运行中的成效与不足,旨在提出重点流域环保考核改革的方向和具体建议。论文首先介绍了文章的选题和意义,研究我国的重点流域环境保护考核制度有助于推进环保工作有效实施,对其他环保考核制度的运行也具有参考意义。随后,文章对重点流域、水污染防治、环境保护考核制度的概念进行了界定,对中央政府与地方政府间的委托代理关系、政府绩效管理理论、激励理论进行了简述。接着回顾了我国重点流域环保考核制度出台的背景,简述了考核制度的基本构成和目前制度的实施情况以及"十三五"以来考核制度的改革方向。文章重点以"十二五"期间的重点流域环保考核制度运行情况作为研究对象,结合考核的实际进行分析和总结。文章以文献和实证研究法为主要研究手段,对重点流域环境保护考核制度进行分析,得出重点流域环保考核的运行实施带来了四点成效:一是地方政府环保重视程度不断提升;二是环境质量不断改善;三是环保基础设施建设加快;四是环境标准要求不断提高。但结合现实情况分析,考核在给地方政府环境保护工作带来激励的同时,也存在一些不足。如考核内容不全面导致的不公平现象、中央与地方政府之间信息不对称导致的道德风险、多任务特征导致的考核前后不一致现象、考核内部化导致的虚假治理。针对这些现象,文章综合相关理论对重点流域考核制度的优化提出三点建议:一是优化考核目标的可实现性,具体措施为合理设置目标难度,充分考虑地区差异,强化目标的正负激励,提供目标实施保障;二是优化考核流程和指标设置,具体为审核工作前置、科学设置考核指标、强化日常考核以替代定期考核,综合配置考核人员;三是优化考核的外部参与,具体措施为推动环境监测第三方外包、加大公众参与力度、允许媒体和非政府组织参与考核。通过这些措施,进一步完善现行的重点流域环保考核制度,助力正在进行的环保考核制度改革,以求更好地提升地方政府环保执行力,促进环境质量好转。
[Abstract]:With the development of economy, the quality of water environment in our country has experienced the process from local deterioration to overall deterioration, among which the pollution in key river basins is the most shocking. The main reason for this phenomenon is that local governments pursue economic growth only for their own benefit and environmental protection work has been neglected for a long time. In order to change the mode of local government from pursuing GDP to sustainable development, and to reverse the situation of environmental quality deterioration in China, the central government has issued a number of environmental protection assessment systems to enhance the attention of local governments to environmental protection work. As an early environmental assessment system, the assessment system of environmental protection in key watersheds has undergone an evolution from formation, development to further reform. This paper studies the operation of environmental protection assessment in key watersheds, analyzes its effectiveness and deficiency in its operation, and puts forward the direction and concrete suggestions for the reform of environmental protection assessment in key watersheds. This paper first introduces the topic and significance of the article, and studies the environmental protection assessment system in key watersheds in China, which is helpful to promote the effective implementation of environmental protection work, and also has reference significance for the operation of other environmental protection assessment systems. Then, the paper defines the concepts of key watershed, water pollution prevention and environmental protection assessment system, and briefly describes the principal-agent relationship between central government and local governments, the theory of government performance management, and the theory of incentive. Then it reviews the background of environmental protection assessment system in key watersheds in China, briefly describes the basic composition of the assessment system, the current implementation of the system and the reform direction of the assessment system since the 13th Five-Year Plan. This paper focuses on the operation of the environmental protection assessment system of the key watershed during the 12th Five-Year Plan period as the research object, and analyzes and summarizes the actual situation of the assessment. Based on the literature and empirical research methods, this paper analyzes the assessment system of environmental protection in key watersheds, and concludes that the implementation of environmental protection assessment in key watersheds has brought about four achievements: first, the local governments pay more and more attention to environmental protection; Second, environmental quality is continuously improved; third, the construction of environmental protection infrastructure is accelerated; and fourth, the requirements of environmental standards are constantly raised. However, according to the analysis of the reality, there are some shortcomings in the examination, which not only brings encouragement to the local government's environmental protection work, but also has some shortcomings. Such as the unfair phenomenon caused by the incomplete content of the assessment, the moral hazard caused by the information asymmetry between the central government and the local government, the inconsistent phenomenon of the assessment caused by the multi-task characteristics, and the false governance caused by the internalization of the assessment. In view of these phenomena, the article synthesizes the correlation theory to the key watershed appraisal system optimization proposed three suggestions: first, optimizes the appraisal goal the realizability, the concrete measure is reasonable setting the target difficulty, fully considers the regional difference, Strengthen the positive and negative motivation of the goal, provide the goal implementation guarantee; second, optimize the examination process and index setting, specifically for the audit work, set up the examination index scientifically, strengthen the daily examination to replace the regular examination, and collocate the staff comprehensively; The third is to optimize the external participation of the assessment, the specific measures are to promote the third party outsourcing of environmental monitoring, increase public participation, and allow the media and non-governmental organizations to participate in the assessment. Through these measures, the current assessment system of environmental protection in key watersheds is further improved, and the reform of environmental protection assessment system is being carried out in order to better enhance the environmental protection executive power of local governments and promote the improvement of environmental quality.
【学位授予单位】：南京大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：X321

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