政策工具视角的养殖用海政策分析框架研究

A study on analytic framework of aquatic breeding policy from the perspective of policy instrument

政府设计和选择适宜的政策工具,对缓解养殖用海产生的矛盾具有重要意义。文章采用内容分析法对中央和地方政府颁布的养殖用海政策所采用的政策工具进行分析,共梳理了37份有效政策样本,共涉及98条条款,形成了政策文本内容分析单元编码表,并基于政策工具构建了我国养殖用海政策二维分析框架。通过养殖用海基本政策工具X维度分析,得知协调型政策工具占政策工具整体的64.28%,而权利型政策工具为20.41%,义务型政策工具最低,约占15.31%。从这个比重可以看出,当前在养殖用海政策工具的选择上政府主要是以协调型政策工具为主体,体现出一定的政策偏爱性。因政策工具是一个由诸多因素构成的系统,应综合考虑,均衡利用各政策工具,发挥不同政策工具的优势和作用。通过对空间优化、权属管理、市场机制、有偿使用、安置补偿等5个方面综合管控能力Y维度分析,得知有偿使用政策工具所占比例最高为28.6%,其次是安置补偿政策工具所占比例为24.5%,权属管理政策工具所占比例为20.4%,而市场机制和空间优化政策工具所占比例最少,分别为17.4%和9.2%。可见我国政府职能的发挥较为充分,一定程度上体现了政府的主导功能,而我国养殖用海的市场化配置制度不健全,对盘活闲置海域资源不利。应从强化养殖用海的综合管控能力入手,加强用海管理,建立长效机制,促进各要素之间相互配合,实现养殖用海的健康有序发展。最后从制定政策的政府层级来看,中央政府作为最高级别政策工具的选择者和引导者,应该制定养殖用海相关政策,从宏观上指导和规范地方政府政策工具的设计和应用。

Government＇s designing and choosing appropriate policy instrument has fundamental significance to relieve the conflict caused by aquatic breeding. This paper adopts content analysis to analyze the policy instrument when central and regional government issued aquatic breeding policy. By organizing 37 samples of effective policy which involves 98 items, this paper establishes unit code table of policy content analysis together with a two dimensional analysis framework of China＇s aquatic breeding. Through the analysis into the dimension X of aquatic breeding policy instrument, it is found that the coordination type policy instrument accounts for 64.28% of the total, whereas right type policy instrument and obligation type policy instrument occupies 20.41% and 15.31% respectively. It could be seen from this proportion that government＇s selection of aquatic breeding policy instrument is mainly characterized by coordination type policy instrument, which embodies preference to a certain policy. Policy instrument is a system made up various factors, thus it should be utilized evenly after overall consideration to better exert the advantages and strengths of different policy instruments. From the analysis into the dimension Y which comprehensively controls spatial optimization, ownership management, market mechanism, compensated use and resettlement compensation, it can be seen that compensated use takes up the highest 28.6% of the total, followed by resettlement compensation and right policy instrument, which occupies 24.5% and 20.4% in respective. The market mechanism and spatial optimization marks the minimum percentage, which accounts for 17.4% and 9.2% respectively. Thus it can be shown that the government function is developed adequately, which embodies the leading position of the government. However, the market allocation system of aquatic breeding is imperfect, which is bad for revitalize idle marine resources. To realize the healthy and ordered development of aquatic breeding, it should be started from strengthening the comprehensive control ability, enhancing marine management, and in the meanwhile develop long-term mechanism to promote interaction between various elements. In the end, from the perspective of central government, as the highest level of policy instrument selector and leader, it should set up relevant policy of aquatic breeding and guide and normalize the design and application of policy instrument for local government.