河长制何以实现“河长治”——基于街头官僚理论的分析视角  

How the River Chief System Realizes"Long-Term River Governance"——Analysis Perspective Based on Street Bureaucracy Theory

作　　者：李熠煜[1] 杨旭 Li Yiyu;Yang Xu(不详)

机构地区：[1]湘潭大学公共管理学院,湖南湘潭411105

出　　处：《中共天津市委党校学报》2021年第1期86-95,共10页Journal of the Party School of Tianjin Committee of the CPC

基　　金：国家社科基金项目“农村空心化背景下社会组织参与养老服务的供给侧改革研究”(批准号16BZZ055);湖南省社科评审规划重点项目“湖南省攻坚扶贫中的社会组织参与研究”(批准号XSP18ZD1010)的阶段性研究成果。

摘　　要：基层河长是我国基层河湖治理执行到位的实际担当者和强本固基的切实执行者。从街头官僚理论看,基层河长在基层治水场域因拥有自由裁量权而享有相当大的政策执行空间、因多重角色冲突而表现出特有的政策执行逻辑,导致了“一刀切”下的政策歪曲执行、基层“权虚责实”“权责倒挂”下的政策敷衍执行、“避责”驱动下的政策隐瞒执行、“乡绅/社区自治”管束下的政策选择性执行和技术赋能下的政策象征性执行等失范表现。实现对基层河长政策执行的权力规制和分配,需要技术官僚对接行政河长,“规范”基层河长自由裁量权;加强治水府际沟通,促成基层河长减负赋权;健全基层河长行为运作机制,探寻水环境治理公众参与模式;权衡河湖管护政策模糊与有效治理,推行水生态保护横向补偿机制;重塑基层河长技术认知,推动技术嵌入与制度完善互构发展,以期实现“河长治”。The grass-roots river chief is the actual person responsible for the implementation of the river and lake governance at the grass-roots level in our country.However,after reviewing under the theoretical framework of street bureaucracy,it is found that in the field of grass-roots water governance,the grass-roots river chiefs enjoy considerable policy execution space due to their discretionary powers,and they exhibit unique policy execution logic due to multiple role conflicts.Distorted implementation of policies under“one size fits all”,perfunctory implementation of policies under“rights and responsibilities”and“inversion of powers and responsibilities”at the grass-roots level,policy concealment implementation driven by“responsibility avoidance”,and policy choices under the control of“squire/community autonomy”.Non-standard performances such as the symbolic execution of policies under the influence of sexual execution and technological empowerment.In order to realize the power regulation and distribution of the policy implementation of the grass-roots river chiefs,it is proposed that the technocrats connect with the administrative river chiefs and“standardize”the discretionary powers of the grass-roots river chiefs;strengthen the communication between the water control governments and promote the reduction of the burden on the grass-roots river chiefs;improve the basic river chiefs Behavioral operation mechanism,exploring the public participation mode of water environment governance;weighing the fuzzy and effective governance of river and lake management and protection policies,and implementing a horizontal compensation mechanism for water ecological protection;reshaping the technical cognition of grass-roots river leaders,and promoting the development of technology embedding and system improvement.Policy recommendations,hope to explore the way to improve rivers and lakes in order to achieve“long-term river governance”.

关 键 词：河长制 基层河长 街头官僚理论 政策执行 

分 类 号：X52[环境科学与工程—环境工程]