复合碎片化:环境精细化治理为何难以推进?——基于整体性治理视角的分析

Compound Fragmentation:Why is Environmental Governance Difficult to be Refined?——Analysis Based on the Perspective of Holistic Governance

进入新时代,人民对美好生活的期待使得环境治理进入精细化的更高阶段。然而,生态环境部门单向度的体制改革,并未使环境精细化治理的固有功能及其成效得到充分发挥。科层体制的“悖论”、利益固化的藩篱、政治锦标赛的惯性和信任机制的式微,使环境精细化治理遭遇“以邻为壑”“各自为战”“顾此失彼”等体制层面的“复合碎片化”挑战。其中,治理区域和条块结构的碎片化加剧了环境治理碎片化运作的可能性,从而构成了环境精细化治理之阙如的静态维度;治理主体的“责任推诿”“目标偏离”与“看管脱节”等多重裂解过程,构成了环境精细化治理困境的动态维度。锚定解决环境精细化可及性过程中的“复合碎片化”问题,需要植入整体性的思维与逻辑。基于整体性治理的视角,加强条块联动并进一步明确相关职能部门之间的职责定位和权责清单,构建赋权增能的行动者网络是可能且可为的路径选择。

Entering the new era,people’s expectation for a better life has led to a higher stage of refined environmental governance.However,the one-way institutional reform of the ecological and environmental sector has not brought the inherent functions of environmental refinement and its effectiveness into full play.The “paradox” of the hierarchical system,the fence of solidified interests,the inertia of political tournaments and the decline of trust mechanisms have made environmental refinement suffer from “beggar-thy-neighbor”,“separate warfare” and “missing the point”,and the challenges of “compound fragmentation” at the institutional level,such as "taking care of one side but not the other".Among them,the fragmentation of the governance area and the fragmentation of the structure of the block intensifies the possibility of fragmented operation of environmental governance,which constitutes the static dimension of the lack of environmental refinement governance;the “responsibility shifting”,“deviation from the goal” and “disconnection of care” of the governance body.The process of multiple fractures such as “disconnection of care” constitutes the dynamic dimension of the dilemma of environmental refinement.To solve the problem of “compound fragmentation” in the process of environmental refinement accessibility,we need to implant a holistic thinking and logic.Based on the perspective of holistic governance,it is possible and feasible to strengthen the linkage between departments and further clarify the position of responsibilities and the list of powers and responsibilities among relevant functional departments,and to build an empowered and empowering network of actors.