长三角水环境协同治理中的国家自主性及其提升路径——基于“制度——行动者网络”的分析框架

State Autonomy and Its Improvement in the Collaborative Governance of Water Environment in Yangtze River Delta——Based on the Analysis Framework of"Institution-actor Network"

长三角水环境协同治理是公认的公共事务治理难题。行政区的属地化管理与整体协同行动之间存在目标冲突和利益分歧,依赖行政权威的政策动员容易产生信任匮乏、非对称性资源依赖、政府“热”民间“冷”等治理难题。国家自主性的嵌入能够在一定程度上有效消除外部性所带来的负溢出效应,为流域跨界水污染协同治理提供合理的制度空间。国家自主性的嵌入需要“制度”与“行动者网络”的双重嵌入。“制度——行动者网络”协同治理框架,可以揭示竞争性制度情景中多元治理主体策略性互动的深刻诱因,可以产生超越政策动员的深度协同。通过田野观察与深度访谈,发现长三角水环境协同治理中制度与行动者网络存在脱嵌现象,导致国家自主性的流失。当前,长三角水环境协同治理,亟须国家自主性的制度嵌入、组织嵌入和技术平台嵌入之提升,最终实现水环境的实质性改善。

The collaborative governance of water environment in Yangtze River Delta is a recognized"chronic disease"in the governance of public affairs.There are conflicts of objectives and differences of interest between localized management of administrative regions and overall coordinated actions.Policy mobilization that relies on administrative authority is prone to generate governance problems such as lack of trust,asymmetric resource dependence,and different attitudes between government and society.The embedding of national autonomy can effectively eliminate the negative spillover effects brought about by externalizations to a certain extent,and provide a reasonable institutional space for collaborative governance of trans-boundary water pollution.The embedding of national autonomy requires the double embedding of"institution"and"actor network".The"institution-actor network"collaborative governance framework can reveal the profound incentives of the strategic interaction of multiple governance entities in the context of competitive systems,and can generate in-depth coordination beyond policy mobilization.Through field observations and in-depth interviews,it was found that institutions and the actor network in the collaborative governance of water environment in Yangtze River Delta are dis-embedded,leading to the loss of national autonomy.At present,the collaborative governance of water environment in Yangtze River Delta urgently needs the improvement of the institutional embedding,organizational embedding,and technological platform embedding in state autonomy,so as to ultimately achieve substantial improvement of water environment.