中国生态文明建设的治理框架及其检验

Governance framework of China’s ecological civilization construction and its test

将生态文明建设纳入治理范畴并给予效能评估是一项重要而紧迫的研究课题。文章通过阐述治理内涵及其与生态文明建设的关系,梳理经典制度理论及相关文献,从治理维度、治理工具、治理措施三个层面构建了中国生态文明建设的分析框架,即“制度-能力”治理模型。以党的十八大以来国家层面生态文明建设的法规政策作为数据样本,运用文本计量和内容分析法对该治理框架进行定性检验。研究结果表明,“制度-能力”治理框架对中国生态文明建设具有较高的解释力。总体来看,中国生态文明治理的效能显著提升。具体而言:第一,中国生态文明法规政策制定与实施呈“间断-均衡”态势,生态治理府际协同度较高;第二,生态文明制度建设与治理能力提升的协同效应显著;第三,生态治理工具结构较为均衡和合理,治理工具之间的组合发力趋势日趋明显,但强制性制度工具仍占主导地位;第四,治理措施的现代化水平有所提高,但并不均衡,措施的管制色彩依然比较明显。据此,从巩固生态文明建设成果的视角,提出政策建议:进一步促进生态文明制度建设和治理能力提升的协同性,筑牢生态文明建设的根基;进一步优化和完善生态治理工具结构,着力提升顶层设计和思想引领在中国生态文明建设中的作用,逐步降低强制性制度在中国生态治理工具集的占比;着力优化和均衡生态治理措施,逐步降低管制性生态治理措施的范围和强度,提升治理措施的现代化水平。

It is an important research subject to bring the construction of ecological civilization into the category of governance. By expounding the implications of governance and reviewing the classical institutional theories and relevant literature, this study constructs a‘system-capacity’ governance framework from three aspects of governance of dimension, instrument, and measure and constructs a qualitative test, taking the laws and regulations related to ecological civilization construction as the data sample. The governance framework of ‘system-capacity’ has high explanatory power as the governance efficiency of China’s ecological civilization construction has become increasingly obvious. First, there is a ‘break-equilibrium’ situation in the formulation and implementation of China’s ecological civilization laws and regulations with a high degree of inter-governmental coordination of ecological governance. Second, the construction of the ecological civilization system and the construction of governance capacity are well coordinated. Third, the structure of ecological governance instruments has become more balanced and reasonable;the combination of governance instruments has become increasingly obvious;but mandatory institutional instruments are still playing a dominant role. Fourth, the modernization of governance measures has been improved, but it is not balanced and regulatory control measures are still widely used. Therefore, the following policy suggestions are put forward: we should further promote the synergy between the construction of an ecological civilization system and the construction of governance capacity and consolidate the foundation of the construction of ecological civilization;we should also further optimize and improve the structure of ecological governance instruments, enhance the role of top-level design and thought leadership in the construction of China’s ecological civilization;and gradually reduce the proportion of compulsory system in China’s ecological governance instrument set;efforts should be made to optimize and balance ecological control measures, upgrade the modernization of control measures;and gradually reduce the use of regulatory ecological control measures.