中央生态环境保护督察何以有效?——一个“引导式共识”概念性框架  

Why Can Central Environmental Inspection Work? An Analytical Framework of “Chinese-style Consensus”

作　　者：陈贵梧[1,2,3,4] Chen Guiwu(School of Public Administration and Emergency Management,Jinan University,Guangzhou 510632)

机构地区：[1]暨南大学公共管理/应急管理学院 [2]暨南大学公共管理/应急管理学院行政管理系 [3]广州现代产业新体系研究基地 [4]广州区域低碳经济研究基地,广州510632

出　　处：《中国行政管理》2022年第5期119-127,共9页Chinese Public Administration

基　　金：国家社会科学基金年度项目“新时代环境政策执行过程的共识构建机制研究”(编号:21BZZ104)。

摘　　要：共识构建是理解和阐释新时代环境政策执行转型的重要理论视角。本文基于新时代环境治理实践场景,结合A省的案例观察和理论推演,提出“引导式共识”的概念性框架,构建“政策分歧—中央环保督察(‘引导式共识’)—政策共识”的逻辑链条,分析中央环保督察推动环境政策在地方有效执行的过程、特征及其逻辑。在微观层面,中央环保督察通过精神宣讲、会议动员、环保约谈、问责惩处等多种机制和方式,在党中央、国务院与地方党委和政府之间实现“引导式共识”的构建,促进了环境政策的有效执行。在宏观层面,中央环保督察承载着以党中央权威和集中统一领导凝聚国家生态环境治理和生态文明建设的共识的功能。本文提出的概念性框架有助于深刻理解和阐释习近平生态文明思想,对自觉执行党中央的重大决策部署具有重要的指导意义。Consensus building is an important perspective for understanding and interpreting the phenomenon of the transformation of environmental policy implementation in the New Era of China.Based on China’s new paradigm of environmental governance,this paper conducted a case study and theoretical analysis of province A,and put forward an analytical framework of “Chinese-style consensus” with the logical path of “policy divergence—Central Environmental Inspection (CEI) / Chinese-style consensus—policy consensus” to examine the process,the characteristics and logics of the CEI to transform local lax compliance of environmental regulation to effective implementation.At the micro-level,CEI greatly improves local environmental regulation performance through building a civilized consensus between central and local governments by ways of preaching,mobilizing meeting,regulatory talk,and accountability.At the macro-level,CEI carries the functions of constructing a nation-wide consensus of environmental governance and ecological civilization in the name of the Communist Party’s authority and uniform leadership.This analytical framework of “Chinese-style consensus” helps to enhance the understanding of Xi Jinping’s concept of ecological civilization,and has important implications for effectively implementing central government’s policy.

关 键 词：习近平生态文明思想 环境治理 中央环保督察 引导式共识 央地关系 

分 类 号：D035[政治法律—政治学]