政策工具有效改善了“九龙治水”困境吗?——基于1984—2018年中国水污染治理的政策文本研究

Have Policy Instruments Effectively Improved the Nine Dragons Taming the Water Dilemma?——Research on the Policy Text of Water Pollution Control in China from 1984 to 2018

【问题】中国水污染治理政策文本画像如何?政策工具的选择偏好如何?国家层面部门间政策工具的协同方略何以达成?【方法】对1984年至2018年113篇中央层面关于水污染治理的政策文本进行内容分析,利用NVivo挖掘出3239个政策文本分析单元,编码19个案例节点,构建政策工具的多维协同分析框架。【发现】作为政策制定主体的国家层面水污染治理主管部门之间关联强度偏低。政策工具选择偏好方面表现出对管制型政策工具的路径依赖。市场型政策工具和自愿型政策工具数量少、空间小、作用有限。不同政策工具类型间协同功能乏力。【结论】论文强调国家治理层面整合不同政策工具类型的重要性,指出了协同型政策工具体系建构的可行之道。依循治理部门协同、治理功能协同和政策工具间协同的现实路径,建构起与新制度环境相匹配的政策工具箱。

Motivation: What portrait of China’s water pollution control can be drawn from its policy texts? What is the preference for policy instruments? How can synergies of intersectoral policy instruments be achieved at the national level?Methodology: This paper analyzes the content of 113 policy texts on water pollution control issued by the central government from 1984 to 2018. In this paper,3239 policy text analysis units were mined by NVivo and 19 case nodes were coded. Meanwhile,a multidimensional collaborative analysis framework of policy instruments was constructed.Findings: As the main bodies of policy-making,the competent departments of water pollution control at the national level are weakly correlated. The policy instrument selection preferences reveal the path dependence of the regulatory policy instruments.Market-based policy instruments and voluntary policy instruments are few in number,small in space,and limited in function. The synergies between different types of policy instruments are also weak.Conclusion: This paper emphasizes the importance of integrating different types of policy instruments at the level of national governance and points out a feasible way to construct a system of collaborative policy instruments. It follows the realistic path of coordination among governance departments, governance functions, and policy instruments,to construct a policy toolbox that matches the new institutional environment.