流域水环境治理体系整合机制创新及其限度——从“碎片化权威”到“整体性治理”  

The Innovation of Integrated Mechanism for River Basin Water Environmental Governance System and Its Limits——From “Fragmented Authority” to “Holistic Governance”

作　　者：杨志云[1] YANG Zhiyun

机构地区：[1]北京科技大学文法学院,北京100083

出　　处：《北京行政学院学报》2022年第2期63-72,共10页Journal of Beijing administration institute

基　　金：中国国家留学基金资助项目“国家构建与调适治理”(201906465041)。

摘　　要：流域水环境保护深受“部门本位主义”和“地方保护主义”的制约。中央着力破除“条块分割”体制藩篱,将国土、水利、农业、海洋等部门的涉水相关职责划转给生态环境部门以重塑流域水环境治理体系。流域水环境治理体系整合改革实质是组织正式权威相对集中与交易成本降低的过程。不过,由于专业知识积累欠缺、信息不对称和资源依赖、水环境和水生态职责仍有整合空间等,生态环境部门的正式权威和实质权威存在一定程度的分离。这意味着流域水环境治理体系的职能整合确实能够降低交易成本但并非“灵丹妙药”。因此,深化水生态和水环境职责整合,进一步降低交易成本,并面对资源依赖的现实约束,明确环境部门和行业管理部门之间的职责定位和精细化部门权责清单,并探索权威性、多样性和灵活性的协调机制将是优先的改革选项。The protection of river basin water environment is deeply restricted by“departmentalism”and“local protectionism”. The central government has made great efforts to abolish the barriers of the system of the“divisions between superior vertical lines of authority and subordinate horizontal blocks of local government”,and transferred the water-related responsibilities of the departments of land resources,water resources,agriculture,and marine to the department of environment to reshape the river basin water environmental governance system. The essence of the integrated reform of river basin water environmental governance system is the process of relatively centralizing organizational formal authority and reducing transaction costs. However,due to the lack of professional knowledge accumulation,information asymmetry and the fact that there is still room for integrating resource dependence,water environment,and water ecological responsibilities,the formal and substantive authority of the department of environment are separated to some extent. This means that functional integration of river basin water environmental governance system can indeed reduce transaction costs,but it is still not a“panacea”. Therefore,the integration of water ecology and water environmental responsibilities should be deepened,transaction costs should be further reduced,the realistic constraints of resource dependence should be faced,responsibility orientation between the department of environment and industry management departments should be defined and the list of powers and responsibilities of departments should be refined,and exploring a coordination mechanism that is authoritative,diverse,and flexible in reform should be given priority to.

关 键 词：流域 水环境 部门主义 交易成本 资源依赖 

分 类 号：X52[环境科学与工程—环境工程]