运动式治理视域下中国河长制的创新类型--基于健全生态环境治理体系的多案例类型学分析

New types of river chief system in China from the perspective of campaign-style governance:A multi-faceted typological analysis grounded in improving eco-environmental governance system

河流是人类文明的发源地,是区域经济发展的重要载体,而河流天然具有的流动属性必然涉及跨越区域和超越主体的治理方式。在社会转型的关键时期,河流污染所折射出的问题早已超越环境、经济和民生的范畴,但面对各流域发展不平衡、治理主体各自为政、监管标准参差不齐等问题,水治理却陷入“越治理,越污染”的怪圈。为此,党中央多次强调“推动绿色发展”的理念,倡导人与自然和谐共生的中国式现代化发展路径,也提出了环境污染精准治理、统筹管理和协同控制的具体策略。而“河长制”作为水治理的新型行政模式,亦可作为生态环境治理体系以小窥大的重要窗口,完全契合党的二十届三中全会关于“健全生态环境治理体系”,“深化生态文明体制改革”总体部署的发展需要。为更好地探究河长制在实践中的发展,本文采用多案例的类型学分析方法,搜集中国各地“河长制”的创新实践,利用质性分析软件RQDA将定量与定性相结合,最终从战略层、决策层、执行层确立法律依据、组织结构和运行机制三大框架,并在此框架之下对各地案例进行分类描述,以期归纳总结运动式治理视域之下“河长制”在各地的创新类型及其展开逻辑。研究发现,法律在战略层面为“河长制”机构的设立及其权力运作提供依据,组织结构在决策层面对“河长制”的权限进行灵活调整,激励机制、考核机制、监督机制和追责机制则在执行层面将“河长制”的施政意图落到实处。可以说,河长制在水污染领域的有益探索,在为政府治理与改革总结宝贵经验的同时也提供了新的思路与方向,具有重要的带动作用和推广价值。

Rivers are the birthplace of human civilization and important carrier of regional economic development.The natural flow attributes of rivers inevitably involve governance methods that span regions and transcend subjects.In the critical period of social transformation,the problems reflected by river pollution have long gone beyond the scope of environment,economy and people’s livelihood.However,faced with unbalanced development of various river basins,independent governance subjects,and uneven regulatory standards,water governance has fallen into a vicious circle of“more governance,more pollution”.In light of this,the CPC Central Committee has repeatedly emphasized the concept of promoting green development,advocates a Chinese-style modernization development path of harmonious coexistence between humans and nature,and also proposes specific strategies for precise control,coordinated management,and collaborative control of environmental pollution.As a new administrative model for water management,the river chief system can also serve as an important window for the ecological environment governance system to see the big picture from a small perspective,which fully meets the overall arrangement of the Third Plenary Session of the 20th Central Committee of the Communist Party of China to improve eco-environmental governance system and deepen the reform of the ecological civilization system.To better explore the development of river chief system in practice,this paper adopts a multi-faceted typological analysis to collect the innovative practices of river chief system across China,combines quantitative and qualitative analysis through qualitative analysis software RQDA,forms three frameworks of legal basis,organizational structure and operation mechanism from strategy,decision-making and execution,hoping to summarize the types of innovation and the logics of the river chief system in the field of campaign-style governance.The study finds that the law provides a basis for the establishment and power operation of the institution of river chief system at the strategic level,the organizational structure flexibly adjusts the permission of the river official system from decision-making level,and also,incentive mechanism,assessment mechanism,supervision mechanism and accountability mechanism implement the administrative intentions of the river chief system from the executive level.It can be said that the beneficial exploration of river chief system in the field of water pollution not only summarizes valuable experience for government governance and reform,but also provides new ideas and directions,which has important driving role and promotion value.