结构限制、利益约束与政府间横向协同——京津冀跨界大气污染府际横向协同的个案追踪

Structural Obstruction,Interest Constraint and Horizontal Intergovernmental Collaboration—— the Practice of Intergovernmental Horizontal Collaboration of Transboundary Air Pollution in Jing-Jin-Ji Region

在当前公共事务治理情境下,横向府际协同问题尤其是跨界大气污染的横向府际协同是理论界与实务界共同关注的焦点之一。本文以京津冀地区为实证研究对象,结合既有研究,以政府间横向协同的结构要素和利益机制为基础,构建跨界大气污染治理横向政府间协同的＂结构-利益＂框架,并运用该框架阐释京津冀跨界大气污染治理中府际横向协同的行为与模式。研究发现,京津冀大气污染的横向府际协同实质上是一种被动的、基于中央压力推动下的协同,这种＂压力型协同＂模式的形成与现行府际协同结构的形态、权力配置、运作以及京、津、冀三地在协同治理过程中大气治理利益及经济发展利益的博弈密切相关。切实解决京津冀跨界大气污染治理中的府际协同问题,须在结构与利益层面对既有协同机制进行重塑与优化。

In the current situation of public affairs governance,the horizontal intergovernmental coordination problem,especially the horizontal intergovernmental coordination problem in the field of transboundary air pollution,is the focus of both theorists and practitioners. The research takes the Jing-Jin-Ji region as an empirical object,and builds an analysis framework of ＂Structure-Interest＂to study the horizontal intergovernmental collaboration of transboundary air pollution based on structural elements and interest mechanisms. The study finds that the horizontal intergovernmental collaboration of air pollution in Jing-Jin-Ji region is essentially a passive,coordinated collaboration based on central pressure. The formation of this passive collaborative mechanism is related to the shape,power allocation,operation of the current collaborative structure,and the game between atmospheric governance interests and economic development interests of Jing-Jin-Ji region. To effectively solve the intergovernmental collaboration problems,it is necessary to reshape and optimize the existing collaboration mechanism at the structure and interest level.