嵌入与重构:中央环保督察对中国环境治理体系的溢出性影响--基于央地关系与政社关系的整体性视角分析

Embeddedness and Reconstruction:Spillover Effect of Central Environmental Protection Supervision on China’s Environmental Governance System--Analysis from the Integrated Perspective Based on the Relationship between Central and Local Government and that

作为中央政府矫正地方政府"偏离失控"行为的控制手段,中央环保督察在调适央地关系,压实地方环境责任的同时,还嵌入政府、企业和公众互动形成的关系网络,对整个环境治理体系发挥调适作用。这一现象很难单纯从央地关系这一视角给予完整解释,为此,本文引入解读国家治理模式的另一条主要线索,基于央地关系和政社关系的整体性视角对相关问题加以考察。研究发现,中央政府对地方政府"控制不足"以及地方政府对社会主体"控制过度"是导致早期环境治理模式陷入困境以及多元共治难以实现的关键因素。中央环保督察嵌入中国环境治理体系,将原来的四元治理结构重构为"中央政府-督察组-地方政府-企业-公众"五元治理结构,进而通过纵向干预、横向吸纳及其间接渗透作用调试了失衡的互动关系,整合了分散的治理行为,对推动中国环境治理模式从"政府管理"向"多元共治"变革产生了积极的"溢出"效应。

As a control means of the central government to correct the"out of control"behavior of the local government,the central supervision system of ecological environment protection not only adjusts the relationship between the central and the local government to consolidate the local environmental responsibility,but also embeds the relationship network formed by the interaction among the government,enterprises and the public to play an adjusting role in the whole environmental governance system.This phenomenon can not be explained from the perspective of the relationship between the central and the local government.Therefore,this paper introduces another perspective to interpret the mode of national governance,and investigates the related issues from the perspective of the relationship between the central and the local government and that between the government and the society.The study found that the insufficient control of the central government over the local government and the excessive control of the local government over the social subjects are the key factors leading to the dilemma of the early environmental governance model and the difficulty of realizing the multi governance model.The central supervision system of ecological environment protection embeds into China’s environmental governance system,and reconstructs the original four-element governance structure into a five-element one,and then debugs the unbalanced interaction through the mechanism of vertical intervention,horizontal absorption and their indirect infiltration,and integrates the decentralized governance behavior,which has a positive spillover effect on promoting the transformation of China’s environmental governance model from government management to multi governance.