运动式治理能否带来持续性的公众参与?——以中央生态环保督察中的公众参与为例  

Can Campaign-Style Enforcement Lead to Sustainable Public Participation?Evidence from Public Participation in the Central Inspection on Ecological and Environmental Protection

作　　者：翟晓祯 梅赐琪 ZHAI Xiaozhen;MEI Ciqi

机构地区：[1]南京大学政府管理学院 [2]清华大学新雅书院 [3]清华大学公共管理学院

出　　处：《公共管理与政策评论》2024年第5期62-81,共20页Public Administration and Policy Review

摘　　要：在运动式治理过程中,除了直接动员地方政府,中央很多时候还会动员公众参与,从上、从下一起向地方政府施压。持续性的公众参与将有利于保持对地方政府的激励和运动式治理的成果,增加运动式治理常规化的可能性。本研究首先从理论层面探索了运动式治理如何影响公众参与在时间维度上的变化:短期中,运动式治理通过开放政治机会使公众参与成为可能,并通过回应公众诉求推动公众参与的扩大;但是公众政策注意力的下降以及参与渠道的不稳定等因素将威胁公众参与的长期可持续性。其次,本文选取两轮中央生态环保督察中公众信访举报的数据检验了以上推论。结果表明,(1)中央生态环保督察中的公众参与规模呈现先扩大后缩小的趋势,难以维持长期稳定;(2)相较于环境污染程度,经济发展因素才是决定公众参与规模的主要因素,这说明公众参与的目的可能并不是出于对环境的关心而是社会发展催生出的社会治理各方面的诉求。以上两个主要结论都表明了运动式治理中的公众参与在实现长效化与常规化时面临的困境。In the campaign-style enforcement,in addition to mobilizing local governments directly,the central government often mobilizes public participation,exerting pressure on local governments from above and below.Promoting sustainable public participation will be of great benefit to maintain the incentives for local governments and the achievements of campaign-style enforcement.We first explore how campaign-style enforcement affects public participation in the time dimension from a theoretical perspective:in the short term,compaign-style enforcement makes public participation possible by opening up political opportunities and promotes public participation by responding to their demands;however,the decline of public attention and the instability of the participation channels will threaten the sustainability of public participation in the long term.Second,we test the above inferences by collecting data on public petitions in two rounds of central inspection on ecological and environmental protection.The results show that:(1)the scale of public participation in the central inspection on ecological and environmental protection tends to expand at the beginning but gradually shrinks,which makes it difficult to maintain long-term stability;(2)economic development factors are the main determinants of public participation compared to environmental pollution.It suggests that public participation in this process may not be motivated by the concerns for environmental protection but rather by demands for various issues of social governance arising from development.These findings illustrate the dilemmas faced by public participation in campaign-style enforcement when it comes to achieving long-term effectiveness and regularity.

关 键 词：运动式治理 常规治理 公众参与 中央生态环保督察 

分 类 号：D630.9[政治法律—政治学] D621.5[政治法律—中外政治制度] X321[环境科学与工程—环境工程]