走向协同的基层环境治理——以A县大气污染防治为例

Towards Collaborative Grassroots Environmental Governance: a Case Study Based on Air Pollution Prevention and Control in County A

随着我国生态文明建设顶层设计的不断加强和国家环境治理体系的日益完善,地方特别是基层环境治理的实践对持续改善环境质量、应对气候变化的影响愈发凸显。基层环境治理涉及环境质量改善、政府职能转变、区域产业结构调整、基层法治化进程等多重目标,关乎多元主体、多个议题、多重制度,极具复杂性、综合性和系统性。以A县大气污染防治为重点考察案例,运用生态博弈框架和网络分析法呈现出行动者网络、行动者-议题网络、行动者-制度网络的具体内容和基本互动关系,进而在对政府-企业-公民的行动者博弈结构和博弈结果模拟中发现,当前中国基层环境治理情境下多元行动者之间显著存在"参与鸿沟",构建使各行动者走向协同的策略情境成为关键,亟待改进的方向包括:发挥"群众路线"的优良传统,提高"办小事"的能力;激发市场主体活力,降低基层环境治理成本;激励自主守法合规,避免制度丛林的负外部性。

With the top-level design of China’s ecological civilization and the national environmental governance system,it has becoming more prominent of the local,especially the grassroots-level practices in terms of continuously environmental quality improvements and tackling climate change. Grassroots environmental governance involves multiple objectives such as improvement of environmental quality,transformation of government functions,adjustment of regional industrial structure,and the process of rule of law,and multiple systems,multiple subjects,and multiple issues,highlighting complexity,comprehensiveness,and systematicness. Focusing on the prevention and control of air pollution in County A,the contents and mechanisms of actor network,actor-issue network and actor-institution network are demonstrated based on the ecological game framework and network analysis. The results of government-enterprise-citizen game simulation in the current grassroots environmental governance context show that,a significant "participation gap"among multiple actors exists and it is crucial to build a strategic context that enables the various actors to make a collaborative choice. Directions for improvement are as follows: exercising the "mass line"tradition to enhance the ability of "doing small things",stimulating the vitality of market players to reduce the cost of environmental governance at the grassroots level,and incentivizing autonomous compliance with the law to avoid negative externalities of the institutional jungle.