论生态文明建设视野下农村环保政策的执行力——对“癌症村”现象的反思

On the Execution Capacity of Rural Environmental Protection Policy in View of Ecological Civilization Construction: an Introspection of Cancer Village Phenomenon

制定环境保护政策是生态文明建设的重要举措,提高环境保护政策的执行力是加强生态文明建设的关键。目前的挑战是:在生态文明建设的大背景下,如何提高农村环境保护政策的执行效能。近年来,中央政府制定了一系列农村生态环境保护政策,但全国仍有20多个省出现因环境污染导致的"癌症村"。这表明农村环保政策执行不力问题十分突出。本文分析了出现这一问题的原因,认为地方政府对落实农村环保政策重视不够,粗放型经济发展方式惯性运作,地方政府绩效考核制度偏差,环保政策执行资源有限农民与污染企业博弈能力不足,以及企业治污成本的外部化等,是其主要原因。提出的主要应对措施包括:进一步提高地方政府官员农村生态环境保护意识,转变农村经济发展方式,建立体现生态文明建设要求的政府绩效考核指标体系,增加环保部门的执行资源,增强农民的博弈能力,改变企业污染的成本收益值。

To develop environmental protection policy 13 an important measure for the construction of ecological civilization and to improve the executive power of the environmental protection policy is also the dey to strengthen the corstruction of ecological civilization. Under the background of bwilding ecological civilization, the challenge now 13 that how to improve the implementation efficiency of rural envivonmental protection policy. In recent years, the central government formulated a series of polices on protecting environment and ecology in rural China, for example ,Several Opinions on Strengthening Rural Ecological Environment Protection Work, Assessment Methods of Main Pollutant Total Emission Reduction, and Notice about Printing and Distributing Comprehensive Working Scheme of Energy Saving and Emission Reduction. Besides, the central government also issued the rural environmental protection policy and implementation plan in the principles of ＂improving governance by awarding＂ and ＂replacing subsidies with awards＂, etc.. However, cancer village caused by environmental pollution appeared in more than 20 provinces in China and this reveals that the poor execution of rural environmental protection policy. The paper holds the views that cancer villages mainly result from following factors： the local governments pay less attention on implementing rural environmental policies, the local governments and enterprises still adopt the extensive mode of economic development, the performance assessment system of governments is inappropriate, executing resources in the implementation of environmental policies are insufficient, peasants have inadequate game ability compared with enterprise, and enterprises externalize its waste treatment cost. The paper puts forwards following measures ： improving environmental awareness of local governments on protecting rural ecological environment, changing the development mode of rural economy, establishing new government performance assessment index with the embodiment of ecological civilization, improving executing resources of environmental protection departments, improving peasants gaming ability and changing cost return value of enterprises to discharge waste.