参与式灌溉管理模式科层化问题分析

Analysis of bureaucracy problem in participatory irrigation management model

从管理模式的权限结构和交易成本视角出发,分析参与式灌溉管理模式科层化的内涵、成因及类别,探讨解决科层化问题的途径与方法。结果表明,理论上参与式灌溉管理模式在权限结构、决策方式和管理机制等方面表现为混合关系、共同决定和多种管理机制相融合的特点,但实践中却往往体现出等级制、层级决策、单一行政管理机制的科层化特征。基于节约交易成本的组织行为激励,政府凭借其权限控制权进行的选择性干预和农民用水户协会等组织的适应性反应是导致科层化问题的主要成因。将政府职责限定在公共服务范围内、完善法律体系支持成立非政府灌溉管理经营组织以及提高农民用水户协会等相关组织的自我管理能力是参与式灌溉管理模式得以可持续发展的关键所在。

From the view of authority structures and transaction costs, this paper analyzes the bureaucratic connotation, causes and category of participatory irrigation management model and discusses the approache and methods of resolving bureaucracy. The results show that participatory irrigation management model should exhibits mutual mixed characteristics of hybrid relationship, co-decision and multiple administration mechanism in theory but bureaucracy, level decision and single administration in practice at those aspects such as authority structure and management mechanism. Based on the organizational behavior inspiration of cost saving, it is the government selective intervention by means of its authority control and organizations such as farmer user association adaptive response that induce bureaucracy problem. The keys of sustainable development of the participatory irrigation management model are that government powers and responsibili- ties should be restricted in public service, and legal system should be perfected in order to support estab- lishment of non-governmental irrigation management operation organization and self management of related organizations such as farmer user association should be improved.