河长制背景下村域河流治理的多中心格局何以形塑——基于汉江流域S村的案例考察

How to Shape the Polycentric Pattern of Village River Government under the Background of River-chief System: A Case Study of S Village in Hanjiang River Basin

作为一项具有鲜明中国特色的治水政策,河长制在广大村域河流生态治理中却效果不佳。本文从自然资源属性的视角出发,基于汉江流域S村的案例考察,借鉴IAD分析框架探索村域河流的多中心治理何以必要、何以形成、何以有效、何以持续。研究发现,村域河流开放性与封闭性兼具的特殊资源属性决定了其利益主体的多元性和多中心治理的必要性;多主体在角色、地位、功能等方面的差异和相对优势是多中心治理发挥作用的关键;不同于西方情境下的多中心治理,在“强政府—弱社会”的现实背景下,必须在坚持政府主导地位的基础上通过赋权增能、监督激励、孵化引导等手段实现各主体权、能、责、利的统一,进而促成“交叠管辖、分散决策”的治理格局。本文拓展了中国情境下公共资源多中心治理的思路,对完善河长制运行机制、促进河长制的多元参与有重要的理论价值和实践意义。

As a water environment policy with distinct Chinese characteristics, the river chief system has not been effective in the ecological management of rivers in most of rural areas.From the perspective of natural resources attributes and based on the case of S village in the Hanjiang River Basin, this paper draws on the IAD analysis framework to explore why the village river polycentric governance structure is necessary, and how to be formed, effective and sustainable.The results show that: the special resource attributes of both openness and closure of village rivers determine the diversity of interest subjects and the necessity of polycentric governance.The differences and comparative advantages of the mult-agents in roles, positions and functions are the key to the role of multi-center governance.Different from the western context, in the “strong government and weak society” the realistic background, polycentric governance must realize the right to different subjects, and the unity of the responsibility through empowerment and energized, supervision and motivation, hatching guiding method can realize the right to different subjects, and the unity of the responsibility based on adhering the dominance of the government, and, in turn, contribute to the governance pattern of “overlapping jurisdiction, decentralized decision making”.This paper expands the idea of multi-center governance of public resources in the context of China, which has important theoretical and practical significance for improving the operation mechanism of river-chief system and promoting the multiple participation of river chief system.