灌溉治理的“产权—激励”机制及其效用——基于甘东灌区治理困境的分析

The "Rights and Incentives" System in Irrigation Governance and its Effects——Based on an Analysis of Governance Difficulties in the Eastern Gansu Irrigation Region

甘东灌区灌溉管理经历了人民公社、社长管理以及自主管理三个时期,有着不同的管理制度和管理模式,对应着不同的参与群体和产权模式。不同的管理方式均因最后的治理困境而结束,并引起管理方式的变革。比较社长管理时期和自主治理时期的资源产权归属与激励结构可以发现,在变革的过程中,资源单位和灌溉设施的产权性质的转变促成了不同的管理模式,解决了相应时期管理方式的弊端,但同时也造成了相应的问题。在管理模式的变革中,资源单位的产权在不断明晰,与资源单位密切相关的渠道系统的产权及维护责任则不甚明确,尤其是末级渠系的维护责任缺失而导致灌溉系统的运行困难和灌溉绩效的受损。

The Eastern Gansu Irrigation Region has weathered three administrative regimes from people＇s communes and commune chief management to self-management with the different management systems and models configured according to varying types of public participation and property rights. Each of the management regimes finally ended due to problems with governance and resulted in transformation of the management method. Comparing resource and property ownership systems and incentive systems of the commune chief management and self-management regimes,we find that during the transformation between them,changes made in the property rights governing irrigation infrastructure and resource units spurred changes in management models,resolved corresponding management malpractices. At the same time,the changes also created new problems. In the course of the transformation,property rights governing resource units were constantly being revised and clarified. But property rights and maintenance responsibilities for the distribution channels so closely linked to the resource units were not particularly clear. Especially in the case of the last link of the irrigation system,the lack of maintenance and responsibility resulted in operating difficulties and damage to the irrigation system＇s performance.