城市生活垃圾分类政策缘何执行艰难?——基于政策执行过程模型的解释

Why is it so difficult to implement the policy of household garbage classification in urban communities?Policy implementation process model analysis

我国城市生活垃圾分类政策执行面临着诸多障碍,居民的不配合行为只是造成分类工作难以落地的表面因素,其背后掩藏着的深层原因,必须要在政策执行过程中寻找答案。为此,运用质性分析方法,基于范米特-范霍恩的政策执行过程模型搭建理论分析框架,从结构、行动者及其互动关系三个层面探究了城市生活垃圾分类政策执行的制约因素。研究发现:1)在结构性层面,垃圾分类标准粗放、政策目标分歧异化,财政资源可持续性保障困境与行政资源“漏斗”效应制约了政策落地。2)在行动者层面,社区地位弱势且能力有限,加之外部系统环境的“弱激励型”驱动,弱化了行动者的执行动力。3)在结构与行动者互动层面,面对“双碳”目标等紧迫性议题,垃圾分类被消解为地方的“非中心”工作;党委系统注意力有限,地方政府呈现出“非强制性”执行倾向,城市间名义“达标式”回应行为相趋同,加剧了政策有效执行的难度。

There are many obstacles in the policy implementation of urban household waste classification in China.However,the superficial reason is only the uncooperation behaviour of community residents,and the deep reason must be found in the process of policy implementation.Therefore,we analyzed the restrictive factors by qualitative analysis method and the theoretical framework established by the model of policy implementation process of Van Meter and Van Horn.It has been found that there are three main influence paths:firstly,there are many obstructive factors in the structural level,including the extensive standards of domestic waste classification policy,the alienation of objectives,the shortage of financial resources and the funneling effect of administrative resources restrict the implementation of the policy.Secondly,for the actor level,due to the disadvantaged status and limited capacity of community,as well as"weak incentive"system environment in the exterior,the actors’implementing motivation has been further weakened.Thirdly,for the level of interaction of between structure and actor,household waste classification has been degraded into"non-central"work of local government in the face of urgent issues such as the"dual carbon"goal.Because of the limited attention of party committee,local governments show a tendency of"non-mandatory"execution and"nominal attainment"response,which further exacerbates the difficulty of effective policy implementation.