应对劳动力转移冲击的“小农水”适应性治理研究——基于广东的调查

Adaptive Governance of Small-Scale Irrigation Systems under the Disturbance of Rural Labor Emigration--Survey in Guangdong

农村劳动力转移对小型农田水利(小农水)永续发展产生新挑战,适应劳动力转移冲击已成为当前学术界关注的重要议题。以管护制度变迁为核心的适应性治理被理论界视为解决之道,但是适应性治理的产生需要哪些条件、管护制度发生了何种变迁、适应性治理效果如何等等,这些问题还鲜有研究。本文基于广东省39宗"小农水"的访谈案例,借鉴制度分析与发展框架和定性比较分析方法,对上述问题进行了系统研究,获得三个研究发现:一是管护制度变迁主要发生在设施维护与水资源分配两个维度,前者由"农民投资投劳"转变为"政府资助"制度,后者由"村领导兼职管理"转变为"水管员专管"制度。二是劳动力转移自身并不能促成适应性治理,需要结合其他地方条件,如"集中式管理组织和有序维护规则"能够实现设施维护制度变迁;"集中式管理组织、强有力的领导和有序的用水规则"或者"领导能力较差且用水无序"能够实现用水制度变迁。三是"小农水"适应性治理成效显著,管护制度变迁提升了"小农水"功能的韧性。本文丰富了适应性治理理论的研究内容,为管理组织适应外部环境变化和农村公共事务永续发展提供了重要参考。

The small-scale irrigation systems are suffering new challenges,which are caused by the typical environmental change of rural labor emigration.The issue of adaptation to the disturbance by labor emigration has attracted much attention from the academia and policy-makers.The commons scholarship regards the theory of adaptive governance as an effective solution.However,the effect of adaptive governance,the conditions to generate adaptive governance,and the types of institutional change are understudied.Based on 39 cases from Guangdong,this study explores these abovementioned issues through the institutional analysis and development framework(IAD)and qualitative comparative analysis(QCA)method.It finds that the institutional changes occurred to two dimensions including infrastructure maintenance and water distribution.The singular condition of labor emigration is insufficient to generate adaptive governance,which instead requests multiple conditions combining,which are biophysical conditions,attributes of community,and rules in use.The institutional changes of adaptive governance have positive effects on the outcomes.This study provides rich contents to the theory of adaptive governance,and direction for the irrigation organizations to adapt to environmental changes as well.