中国耕地生态管护制度碎片化困境与整体性治理研究
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摘要
中国耕地生态管护呈现主体与政策双重碎片化倾向。一方面,国土、农业、环保、水利、林业、发改、财政等部委皆在耕地生态管护中发挥作用,"九龙治水"的格局明显;另一方面,耕地生态管护相关政策在理念和工具层面也存在着空白、重叠和冲突,未能形成合力。鉴于此,文中以整体性治理理论为基础,结合2018年国务院机构改革方案和相关部委"三定"规定,以协调与整合为手段,以破解碎片化困境为目标,提出优化中国耕地生态管护制度的实现路径。即,在管护体制层面,清晰决策者、参与者、监督者和协调者的职责,建立国家耕地生态信息平台,明确剩余治理权归属;在管护政策层面,建立耕地生态管护政策的三级协调与整合机制。
China's cultivated land ecological management and protection presented a tendency to double fragmentation of the department and policy. On the one hand, ministries and commissions such as land and resources, agriculture, environmental protection, water conservancy, forestry, development and reform, and finance all played the roles in the management of cultivated land; on the other hand, there were conflicts, overlaps as well as gaps in the concepts and tools of farmland ecological management and protection policies, so,it was failed to form a joint force. Therefore, based on the holistic governance theory, this paper combined the institutional reform plan of the State Council in 2018 as well as the division of relevant ministries and commissions' responsibilities, took the coordination and integration as the means, solved the fragmentation dilemma as the goals, the realization path of the holistic governance management of cultivated land ecological management and protection in China was proposed. That is, at the level of the management and protection system, the responsibilities of decision makers, participants, supervisors and coordinators were cleared, a national arable land ecological information platform was established, as well as the ownership of the remaining governance rights was clarified; At the level of management and protection policy, a three-level coordination and integration mechanism for the management policy of cultivated land ecological management was established.
China's cultivated land ecological management and protection presented a tendency to double fragmentation of the department and policy. On the one hand, ministries and commissions such as land and resources, agriculture, environmental protection, water conservancy, forestry, development and reform, and finance all played the roles in the management of cultivated land; on the other hand, there were conflicts, overlaps as well as gaps in the concepts and tools of farmland ecological management and protection policies, so,it was failed to form a joint force. Therefore, based on the holistic governance theory, this paper combined the institutional reform plan of the State Council in 2018 as well as the division of relevant ministries and commissions' responsibilities, took the coordination and integration as the means, solved the fragmentation dilemma as the goals, the realization path of the holistic governance management of cultivated land ecological management and protection in China was proposed. That is, at the level of the management and protection system, the responsibilities of decision makers, participants, supervisors and coordinators were cleared, a national arable land ecological information platform was established, as well as the ownership of the remaining governance rights was clarified; At the level of management and protection policy, a three-level coordination and integration mechanism for the management policy of cultivated land ecological management was established.
引文
[1] 新华网.习近平:做好耕地占补平衡推进农村土地流转[EB/OL].http://www.xinhuanet.com/politics/2015-05/26/c_1115415731.htm,2015-05-26/2018-12-18.
[2] 郭文华.耕地保护向数量质量生态并重转变[J].国土资源情报,2012(12):35-38.
[3] 汤怀志.耕地生态功能管理不可缺失[J].中国土地,2017(7):12-14.
[4] 郝亮,李颖明,程多威.环境侵权视角下耕地镉污染治理责任研究[J].东北农业大学学报(社会科学版),2017,15(1):37-42.
[5] 韩小凤.整体性治理视角下中国养老保障制度研究[J].山东社会科学,2014(9):82-86.
[6] 吴大放,刘艳艳,刘毅华,等.耕地生态安全评价研究展望[J].中国生态农业学报,2015,23(3):257-267.
[7] 张锐,刘友兆.我国耕地生态安全评价及障碍因子诊断[J].长江流域资源与环境,2013,22(7):945.
[8] 贾书楠,孙睿,夏显力,等.西安市耕地生态安全测度及影响因素分析[J].水土保持研究,2016,23(3):164-169.
[9] 徐明岗,卢昌艾,张文菊,等.我国耕地质量状况与提升对策[J].中国农业资源与区划,2016,37(7):8-14.
[10] 王晶,韩霁昌.黄土高原土地整治中的生态问题及对策[J].中国土地,2013(7):55-56.
[11] 孟雅丽,苏志珠,马杰,等.基于生态系统服务价值的汾河流域生态补偿研究[J].干旱区资源与环境,2017,31(8):76-81.
[12] 周利秋,郑楷千.我国耕地生态保护政策之演进研究-以生态文明为视角[J].知与行,2017(9):68-72.
[13] 陶金.中国耕地生态系统运行效应与响应[D].北京:中国地质大学(北京),2013:6-7.
[14] 谢俊奇,郭旭东,李双成,邱扬,等.土地生态学[M].北京:科学出版社,2014:341-343.
[15] 张勇杰.渐进式改革中的政策试点机理[J].改革,2017(9):38-46.
[16] 武鹏.中国渐进式改革的特色及其意义[J].中州学刊,2018(1):14-19.
[17] 郝亮,李颖明,张丛林,等.耕地重金属污染治理政策与利益相关者互馈机制实证研究-基于某试点区的调研[J].中国环境管理,2018,10(4):21-27.
[18] 金姗姗.高校内部治理碎片化困境及其突破:整体性治理的视角[J].教育发展研究,2014(3):36-41.
[19] Leat D,Stoker G,et al.Towards Holistic Governance:The New Reform Agenda[M].New York:Palgrave,2002:48.
[20] Ling T .Delivering joined-up government in the UK:dimensions issues and problems[J].Public administration,2002,80(4):625-626.
[21] 李胜.超大城市突发环境事件管理碎片化及整体性治理研究[J].中国人口·资源与环境,2017,27(12):88-96.
[22] Perri S.Joined-up government in the western world in comparative perspective:A preliminary literature review and exploration[J].Journal of Public Administration Research and Theory:J-PART,2004,14(1):103-138.
(1)所谓碎片化,在治理语境下强调的是治理主体间缺乏协调而导致的沟通与合作障碍、治理政策实施散乱、治理目标的低效甚至失败的现象[5]。从管理体制方面看,碎片化包括横向碎片化,即中央各部委间的碎片化,也包括纵向碎片化,即中央政府与地方政府间的碎片化,文中主要关注横向碎片化。
(2)文中的制度主要是指耕地生态管护的体制和政策。
(3)这一期间为改革开放以来的第六次规模较大的政府机构改革,同时也是国家开始重视耕地生态管护,并出台相关政策的阶段,具有较好的代表性。此外,文中涉及的2018年政策为截至7月底出台的政策。
(4)文中的政策是指直接或间接地维持与改善耕地生态系统,为人类提供各种生态产品和服务的法律、政策、规划与方案等。
(5)中央层面文件主要指中共中央、国务院、全国人民代表大会常务委员会、中共中央办公厅和国务院办公厅等制定出台的文件。
(6)与公司治理中的剩余索取权类似,"剩余治理权"是为了避免政府各部门在提供公共服务中可能出现的剩余风险而做出的制度安排。
[2] 郭文华.耕地保护向数量质量生态并重转变[J].国土资源情报,2012(12):35-38.
[3] 汤怀志.耕地生态功能管理不可缺失[J].中国土地,2017(7):12-14.
[4] 郝亮,李颖明,程多威.环境侵权视角下耕地镉污染治理责任研究[J].东北农业大学学报(社会科学版),2017,15(1):37-42.
[5] 韩小凤.整体性治理视角下中国养老保障制度研究[J].山东社会科学,2014(9):82-86.
[6] 吴大放,刘艳艳,刘毅华,等.耕地生态安全评价研究展望[J].中国生态农业学报,2015,23(3):257-267.
[7] 张锐,刘友兆.我国耕地生态安全评价及障碍因子诊断[J].长江流域资源与环境,2013,22(7):945.
[8] 贾书楠,孙睿,夏显力,等.西安市耕地生态安全测度及影响因素分析[J].水土保持研究,2016,23(3):164-169.
[9] 徐明岗,卢昌艾,张文菊,等.我国耕地质量状况与提升对策[J].中国农业资源与区划,2016,37(7):8-14.
[10] 王晶,韩霁昌.黄土高原土地整治中的生态问题及对策[J].中国土地,2013(7):55-56.
[11] 孟雅丽,苏志珠,马杰,等.基于生态系统服务价值的汾河流域生态补偿研究[J].干旱区资源与环境,2017,31(8):76-81.
[12] 周利秋,郑楷千.我国耕地生态保护政策之演进研究-以生态文明为视角[J].知与行,2017(9):68-72.
[13] 陶金.中国耕地生态系统运行效应与响应[D].北京:中国地质大学(北京),2013:6-7.
[14] 谢俊奇,郭旭东,李双成,邱扬,等.土地生态学[M].北京:科学出版社,2014:341-343.
[15] 张勇杰.渐进式改革中的政策试点机理[J].改革,2017(9):38-46.
[16] 武鹏.中国渐进式改革的特色及其意义[J].中州学刊,2018(1):14-19.
[17] 郝亮,李颖明,张丛林,等.耕地重金属污染治理政策与利益相关者互馈机制实证研究-基于某试点区的调研[J].中国环境管理,2018,10(4):21-27.
[18] 金姗姗.高校内部治理碎片化困境及其突破:整体性治理的视角[J].教育发展研究,2014(3):36-41.
[19] Leat D,Stoker G,et al.Towards Holistic Governance:The New Reform Agenda[M].New York:Palgrave,2002:48.
[20] Ling T .Delivering joined-up government in the UK:dimensions issues and problems[J].Public administration,2002,80(4):625-626.
[21] 李胜.超大城市突发环境事件管理碎片化及整体性治理研究[J].中国人口·资源与环境,2017,27(12):88-96.
[22] Perri S.Joined-up government in the western world in comparative perspective:A preliminary literature review and exploration[J].Journal of Public Administration Research and Theory:J-PART,2004,14(1):103-138.
(1)所谓碎片化,在治理语境下强调的是治理主体间缺乏协调而导致的沟通与合作障碍、治理政策实施散乱、治理目标的低效甚至失败的现象[5]。从管理体制方面看,碎片化包括横向碎片化,即中央各部委间的碎片化,也包括纵向碎片化,即中央政府与地方政府间的碎片化,文中主要关注横向碎片化。
(2)文中的制度主要是指耕地生态管护的体制和政策。
(3)这一期间为改革开放以来的第六次规模较大的政府机构改革,同时也是国家开始重视耕地生态管护,并出台相关政策的阶段,具有较好的代表性。此外,文中涉及的2018年政策为截至7月底出台的政策。
(4)文中的政策是指直接或间接地维持与改善耕地生态系统,为人类提供各种生态产品和服务的法律、政策、规划与方案等。
(5)中央层面文件主要指中共中央、国务院、全国人民代表大会常务委员会、中共中央办公厅和国务院办公厅等制定出台的文件。
(6)与公司治理中的剩余索取权类似,"剩余治理权"是为了避免政府各部门在提供公共服务中可能出现的剩余风险而做出的制度安排。