碎裂型政府架构下的行政事务管理——以美国湿地管理机制为例

Administrative Affairs Management in a Fragmented Structure of Government——The Case of Management Mechanism of Wetlands in U.S.A

在政府管理过程中,跨部门、跨层级复杂行政关系的协调一直是难以解决的重大问题,多头管理往往导致具体事务管理上的困境。美国政府向来以权力分散、碎裂著称,在具体行政事务上也经常出现"九龙治水"的多头管理局面,但是美国行政机构的效率之高也是有目共睹的。因此,美国碎裂型政府架构如何运作、如何将不利条件转化为行政管理的驱动力就成为研究的热点。以美国湿地管理与保护机制为例,分析在具体行政事务管理中的政府行为;结合联邦主义理论、府际关系理论及府际管理理论,解释美国碎裂型政府方面的优势,构筑了分析模型。在这个分析模型中,环境保护署和陆军工程兵团等核心管理部门的清晰权限、相互之间的合作与制衡直接决定着湿地事务管理的绩效,而联邦的三权分立、各州及地方政府、权力及资源权属状况、社会利益团体等多方面因素构成了核心管理部门的外部环境;外部环境限定了核心管理部门的行动范围,也赋予它们必要的资源和权力。因此在湿地管理方面,美国围绕着若干重要的联邦机构,联合其它相关联邦机构及各州、地方政府,再吸收社会组织和个人的建设性参与,形成了一套法网严密、执法适度、资助得力、公民积极配合的高效管理机制。

It is always hard to coordinate the complicated administrative relations cross different agencies and governments,especially in a country with an extremely fragmented structure of power such as United States.However,as we all know,the administration efficiency of U.S.government is fairly great.How does U.S.government achieve high efficiency with a fragmented structure of government? In this article,the author takes the protection and management mechanism of wetlands in U.S.A as an example to discuss the deep reasons.Based on the critique of Federalism,the theory of Intergovernmental Relations and the theory of Intergovernmental Management,an alternative analysis model comes into being.According to this model,separation of powers,states and local government,the status of powers and rights,and social interest groups compose the external political environment of the core federal agencies,such as the Environmental Protection Agency and the US.Army Corps of Engineers.The performance of management depends directly on the clear purview of power of the core federal agencies and the mutual restriction,while the external political environment provides the power and resources at the same time as inhibiting their inappropriate actions.A cooperation and management system of wetlands has already been founded in the United States.The system is based on many laws and regulations,dominated by several powerful federal agencies,and accompanied by many stakeholders including other related federal agencies,local governments,local communities,associations and individuals.It is an effective and efficient system,which deserves use for reference.