中国环保行政体制结构初探

Analysis on the Organizational Structure of Environmental Administrative System

环保行政体制结构是环保行政组织系统的基本框架,是实现环保行政管理职能的组织方式。我国长期以来的环保行政体制改革较为关注机构地位提升与管理职能强化,环保行政体制的结构较少得到关注。对环保行政体制结构的分析揭示了在机构地位提升与管理职能得到强化的前提下我国环保行政管理依然面临执法监督难、部门协调难等问难题的深层体制原因。本文首先根据组织行为学的基本原理,提出我国环保行政体制的矩阵结构模式,这一矩阵结构在纵向上存在双权威系统,横向上协调关系较为薄弱,从而造成环保监管权威弱化。其次,基于对我国地方环保行政体制改革效果的调查,指出我国环保行政体制结构出的了若干变化。最后,结合我国"十二五"时期落实国家环保意志的基本要求,提出改善我国环保行政体制结构的若干政策建议,即在基层改善体制结构中的双权威系统,并以流域水环境管理体制创新为大部门体制改革突破点,探索环境管理职能组织方式的优化途径。

The organizational structure of environmental administrative system is the main frame for the environmental administrative system. It is institutional approach to exercise the administrative functions. For quite some time the environmental administration reform pays more attention to a higher level administration and stronger functions than the organizational structure. According to analysis based on organization structure, the paper reveals basic reasons of insufficiency in the environment administrative law enforcement and inadequate coordination of inter-departmental cooperation. First, the paper presents a matrix organization model, and there are dual authority and weak collaborative relationship in the matrix model which causes the weakening of supervision authority. Second, based on investigation of local environmental administrative system reform, the paper proposes some changes has taken place in the organizational structure. At last, the paper proposes that the government should establish the vertical administration at county level to improve the dual authority system, and explore the optimized approach of river basin management system to promote the reform of super ministry.