我国基层政府河长制执行偏差:主要表现形式、成因及其矫正路径

A Study on Manifestations,Causes and Correction Paths of the Deviation in Implementing the Policy of River Chief System in Chinese Local Governments

基层政府是河长制执行的最后一公里。当前,河长制政策在基层政府存在多种类型的执行偏差。在分析基层政府河长制执行偏差主要表现形式的基础上,构建了以政策特性、组织基础以及任务环境三个关键因素为主的分析框架,来对基层政府河长制执行偏差何以产生进行分析。分析认为:河长制政策的冲突性和模糊性导致政策执行偏差不可避免,权责结构失衡以及总体能力相对薄弱的组织基础进一步加大了政策执行偏差,而由压力型体制下的体制性压力、打好污染攻坚战的政治性压力以及过度强调工作留痕的制度化压力等共同塑造的“强任务、强压力”任务环境则更进一步加重了政策执行偏差。未来,为了提升基层政府河长制执行效能,需要践行生态优先、绿色发展的理念、建立完善基层政府生态环境主体责任和配合责任清单、积极推进乡镇综合执法改革、提升基层治水能力、推行柔性管理以及考核检查更加注重实绩等。

Local governments are the last kilometer in implementing the river chief system policy.However,at present there still exists deviations while implementing this policy.After studying the main manifestations of the deviations,this paper proposes it could be possible to analyze the deviations from three perspectives:policy characteristics,organizational basis and task environment.The results show that the deviations are inevitable because of the conflict and fuzziness of policy itself;those deviations can be serious because of the imbalance of power and the limited capacity in the organization.And the deviations could be even worse for the negative task environment of“tough task and undue pressure”,in which some pressure comes from the system,some from political fight against pollution,and some from the excessive emphasis on leaving traces of work.Therefore,authors of this paper draw the following conclusions:to enhance the implementation efficiency of the river chief system in local governments,we should give priority to ecolo-gy and green development.Then we need to establish and improve a system in which there should be a list of concrete responsibilities for ecological en-vironment and these responsibilities should be shouldered by an appointed main body.At the same time,we should promote the reform of comprehen-sive administrative law enforcement at the local governments,enhance the ability to control waters,implement flexible management,and in doing as-sessment,we need to pay more attention to practical results.