规则流变视角下农村基层治水体系建设——以福建省永春县农田水利设施管护改革为例

A Dynamic Analysis of Rural Irrigation Governance Based on Ostrom’s Governance Principles: A Case Study from Yongchun County, Fujian Province

实施乡村振兴战略以来,各级政府对农村水利的投入不断增加,然而"政府管不到、集体管不好、市场管不了"的现象仍然存在,跨村水利管护机制缺失、基层治水规则与秩序失范问题亟待解决。本文以福建永春县吾峰镇农田水利设施管护改革为例,分析基层村镇场域中治水规则的建立与变革,从边界、身份、选择等7项规则入手剖析其对基层治水有效性的作用机制。研究发现,治水规则深刻影响了吾峰镇水利管护的行动情境:边界规则突破了原有以行政边界划定的资源治理边界,并鼓励企业等新行动主体进入;身份规则、选择规则明晰了管护主体的合约关系,确定了权责监督机制;偿付规则实现了良好的激励作用;信息规则推进了基层治水的公开、透明化运营;聚合规则创新了基层民主的可实现形式;范围规则通过试点选择创造了政策空间。在7项基层治水规则的共同作用下,吾峰镇农田水利设施管护改革摆脱了管护主体缺失困境和跨域治水合作困境,实现了治水行为的规范有序和管护绩效的稳步快速提升,促进了农村基层治水能力的现代化建设。

The Chinese government has been making great efforts to invest in irrigation projects,yet policy failures have been reported,in particular when it is related to inter-village water conservancy work.Based on a case study in Yongchun County,Fujian Province,this article uses Ostrom’s seven governance principles to analyze the water reform and its impact on the effectiveness of grass-roots water control.The study finds that water control rules have a profound impact on the action arena of water conservancy management and protection in Wufeng Town.This was the first attempt to deal with collective action dilemma among villages,thus making Yongchun a model case for other rural districts to follow.It has established a new irrigation entity named“Qingping Maintenance Center”to provide water-use service to local people,which has greatly improved local irrigation performance,making a huge contribution to the modernization of rural irrigation governance.