政府动员型环境政策及其地方实践——关于内蒙古S旗生态移民的社会学分析

Environmental Policies Based on Government Mobilization and their Local Implementation:A Sociological Analysis of Ecological Migration at S Banner in Inner Mongolia

在我国西部生态脆弱地区得到广泛实践的生态移民政策,延续了中国长期形成的政府动员型环境政策"危机应对"和"政府直控"的特点。通过对内蒙古S旗的实地研究,我们发现生态移民政策的实践过程是一个由中央政府、地方政府、市场精英、农牧民等多元社会行动主体共同参与的社会过程。在复杂互动关系的背后是由政府力量、市场力量以及地方民众所形成的权力和利益网络。自上而下的生态治理脉络中,地方政府处于各种关系的连接点上,其集"代理型政权经营者"与"谋利型政权经营者"于一身的"双重角色",使环境保护目标的实现充满了不确定性。

The ecological migration policy widely practiced in the ecologically fragile areas of western China bears the hallmarks of 'crisis-response' and 'direct government control' typical of China's previous environmental policies based on government mobilization.Our fieldwork at S Banner in Inner Mongolia reveals that the implementation of the ecological migration policy is a social process involving joint participation of multiple social agents including the central government,local governments,market elites,and farmers and herders.Behind these complex interactions is a network of power and interest constituted by government power,market power and the local people.Local governments function as a node joining different linkages in top-down ecological governance.Their dual role as 'agent-managers of political power' and 'profit-seeking managers of political power' leads to great uncertainty in the realization of environmental protection goals.