政府和社会资本合作会成为中国农村环境治理的新模式吗?——基于全国若干案例的现实检验

Can Public Private Partnership(PPP) in Rural Environmental Governance Become a New Governance Model in China? An Analysis Based on a Reality Testing on Six Cases

PPP(即政府和社会资本合作)已成为社会各界关注的热点,并逐渐被应用于农村环境治理领域。本文在理论分析的基础上,阐释了当前中国农村环境治理失灵的多重困局以及引入PPP模式的治理优势,并基于全国东、中、西部6个案例从效率、公平性和可持续性的角度对农村环境治理PPP模式有效性进行了剖析。研究发现:农村环境治理PPP模式作为一种新生事物,在应对农村环境治理失灵的多重困局方面具有巨大潜力;现实检验也表明,农村环境治理PPP模式在一定程度上能解决缺钱、缺技术和缺人员问题,有利于区域间环境公平状况的改善。但是,PPP模式极为复杂且在实践应用中面临诸多困境,包括欠发达地区市场竞争不充分、项目合作企业过度强调利润导向而忽视社会责任、地方政府治理能力弱、农民和村集体被边缘化等。进而言之,只有满足一定条件(相匹配的治理能力、多元主体有效参与等),PPP才会成为中国农村环境治理的新模式。因此,需客观且辩证看待农村环境治理PPP模式,其具体实施要因地制宜和审慎推进。

The PPP (Public-private Partnership) model has become a focus of public concern and been gradually applied to rural environmental governance. Based on a theoretical review and in-depth interviews, this article explains the multiple failures and predicament of China's rural environmental governance, and recommends the PPP model of governance. Based on a number of cases from efficiency, equity and sustainability, it demonstrates the context of PPP in rural environmental governance. The study finds that the PPP model in rural environmental governance, as a new phenomenon, can response to the rural environmental governance of multiple failures and predicament and has a huge potential. Reality testing also shows that the application of the PPP model in rural environment governance can solve the shortage of funds, technology and personnel, and improves the environmental governance equity between urban and rural areas. However, the PPP model is very complex and faces many difficulties in the practical application, such as insufficient market competition, a lack of corporate social responsibility, management incapability of government and farmers' insufficient participation in rural environmental governance. In case of certain criteria (such as appropriate governance ability, effective participation of multiple agents), the PPP model is expected to become a new type of China's rural environmental governance. Therefore, the PPP model of rural environment governance should be applied in a steady way.