重点国有林区治理碎片化困境及破解对策——基于整体性治理理论的分析  

The Dilemma of Governance Fragmentation in Key State-Owned Forest Regions and Its Solutions:An Analysis Based on the Holistic Governance Theory

作　　者：纪元 赵海兰 柯水发[1] JI Yuan;ZHAO Hailan;KE Shuifa

机构地区：[1]中国人民大学农业与农村发展学院 [2]国家林业和草原局发展研究中心 [3]中国社会科学院数量经济与技术经济研究所

出　　处：《中国农村观察》2024年第5期116-137,共22页China Rural Survey

摘　　要：在国家推动治理结构调整的过程中,重点国有林区实施的政企分开改革取得了一定成效,但也产生了治理碎片化问题,制约了林区的高质量发展。基于整体性治理理论,本文结合龙江森工集团有限公司和相关属地政府的林区治理实践,从主体、理念、权责、机制、数据五个维度深入探究林区治理碎片化的表现形式,以及林区面临的公共服务裂解、管理成本提高、工作衔接不畅、治理效率下降等问题。研究发现,重点国有林区原政企合一管理体制的制度路径依赖效应与快速变化治理需求间的矛盾、传统官僚体制的刚性边界与林区治理系统内在张力的冲突、林区数字治理技术应用滞后和数字技术藩篱的存在等都是导致治理碎片化的原因。为了破解多元主体参与下的治理碎片化困境,推动林区治理现代化,重点国有林区的治理体系调整可以采取以下措施:通过重构行动主体间的协调机制和信任机制破除制度的路径依赖,重塑行动者网络;通过完善治理责任机制和整合机制,突破传统行政边界,构建治理主体双向互动机制;通过增强数字技术应用以提升协同治理效能。这些措施的采用可以促使林区建设更好地融入东北高质量发展大局,并为推进国家治理现代化改革提供林区方案。In the process of promoting the adjustment of governance structure in China,the reforms of separating government and social functions from enterprise management implemented in key state-owned forest regions,have achieved great results.However,it has also led to the problem of governance fragmentation,which hinders the high-quality development of forest regions.Drawing on the theoretical framework of holistic govermance,this study divides the manifestations of governance fragmentation into five dimensions based on the governance practices of Longjiang Forest Industry Group Co.,Ltd.and relevant local govermments:subjects,concepts,authorities and responsibilities,mechanisms,and data,as well as the problems caused such as public service fragmentation,increased management costs,poor work connection,and decreased governance efficiency.The results show that the contradiction between the institutional path dependence effect of the original integrated management system of government and enterprise and the rapidly changing governance needs in key state-owned forest regions,the conflict between the rigid boundaries of the traditional bureaucratic system and the internal tensions of the forest region governance system,as well as the lag in the application of digital governance technology and the existence of digital technology barriers in forest regions,are all endogenous sources of governance fragmentation.In order to solve the problem of governance fragmentation under the participation of multiple governance entities and to promote governance modernization in forest regions,the adjustment of the governance system in key state-owned forest regions should be achieved by restructuring the coordination and trust mechanisms among action entities to get rid of the path dependence of the institutions and reshape actor networks,by improving the governance responsibility mechanisms and integration mechanisms in order to break through traditional administrative boundaries and construct a two-way interaction mechanism for governance

关 键 词：整体性治理 治理碎片化 多元治理主体 重点国有林区 政企分开改革 

分 类 号：F326.25[经济管理—产业经济] D630[政治法律—政治学]