美国联邦林业机构公共管理事权与支出责任划分--基本情况、总体思路和主要经验

U.S. Federal Forestry Agencies' Administrative Authority and Spending Responsibility——The Basic State, General Idea and Main Experience

美国联邦机构之间,林业事权按照各机构提供的生态产品属性不同进行划分;在联邦与州政府之间依据"产权+外溢性"划分。林业事权与支出责任相适应处于博弈谈判的调整中,关照民生是各方的平衡节点,重要经验是构建了"依法立事、依事定财、以财行事"的制度安排。从政府与市场、政府间关系看,主要经验包括:(1)事权划分和增减调整授权的法定性;(2)集权适度、分权有限,政府间分权和问责相统一的制衡安排;(3)通过林权下放,以政府为主导、市场为基础,形成多方投入和供给的林业事权配置多元化体系;(4)公共财政主体投入地位,确保与庞大的林业事权体系相适应的政府支出责任;(5)政府与市场的关系综合考虑"产权+公共产品特征+公民参与"三方面,边界清楚,表现出清晰性,但根据生态环境问题影响范围进行相机授权,增减调整事权,明确政府林业职能,又表现出灵活性;(6)建立了事权和支出责任相适应的不定期调整优化机制和科学有效的退出机制。

Among the United States＇ federal agencies, the forestry responsibilities are distributed according to the properties of ecological products provided by agencies while the distribution of forestry responsibility was based on ＂property and externality＂ between the federal and state governments. During the adjustment between forestry responsibility and expending responsibility through negotiations, concerning the livelihood with the ＂legal, factual, economical＂ principles is the point where the interest of stakeholder balanced. From a Perspective of the relationship among government, market, and Intergovernmental relations, the main experiences which can be learned includes： （1） The distribution of responsibility and the adjustment of authorization is based on law; （2） The union arrangement for decentralization and centralization in multiple-level governments ; （3） The diversified distribution system for forestry responsibility with multiple investment and supply is formed through the distribution of forestry right where the process is based on the market and oriented by government. （4） The dominant position of public finance has been established, making governments which can be compatible with the forestry responsibility system expending responsibilities. （5） The relationship between government and the market consider the ＂public goods characteristics、property and citizen participation＂, which has clear boundary and shows clarity while the relationship can be adjusted in terms of extent of environmental problems which explicit the government responsibility of forestry and shows the flexibility; （6） Establishments of irregularly adjustable optimization mechanism which coordinated the responsibility and its fulfillment and the scientific and effective exit mechanism as well as of the effective exit mechanism.