区域环境协同治理困境:现实挑战、理论缘由与应对策略

The Dilemma of Regional Environmental Collaborative Governance:Practical Challenges,Theoretical Reasons and Coping Strategies

中国式环境治理现代化是中国式现代化的生动实践和有力支撑,区域环境协同治理是我国区域实践和环境政策中普遍采用的组织形式,而区域环境治理困境是中外都存在的普遍现象。区域环境协同治理面临着许多现实挑战:生态系统的完整性与人为管理的分割性,污染的无界性与管理的有界性,属地管理的限定性与跨界治理的延展性,经济效益的短期性与环境效益的长期性,政府更替、干部任期与环境治理过程的不一致性;而外部性与搭便车、个体理性与集体理性的偏离、政府间纵向委托代理与横向竞合博弈是其理论缘由。应对策略需要从三个层面着力:通过多主体参与回应环境治理复杂性的需求、通过政府干预与环境规制应对外部性和“市场失灵”、通过明晰环境权益以及创造污染交易市场并使治理成本内部化。

The modernization of Chinese environmental governance is a vivid practice and strong support of Chinese path to modernization.The coordinated governance of regional environment is an organizational form commonly used in China′s regional practices and environmental policies,and the dilemma of regional environmental governance is a common phenomenon both at home and abroad.The coordinated governance of regional environment is faced with many practical challenges:the integrity of the ecosystem and the division of human management,the boundedness of pollution and the boundedness of management,the limitation of territorial management and the extension of crossborder governance,the short-term nature of economic benefits and the long-term nature of environmental benefits,the inconsistency between government turnover,the tenure of cadres and the process of environmental governance,while the externalities and free riders,and the deviation of individual rationality against collective rationality,vertical principalagent and horizontal competition and cooperation between governments are the theoretical reasons for the dilemma of regional environmental collaborative governance.There are three coping strategies:using multi-center governance of collaborative governance bodies to deal with the complexity of environmental governance,using government intervention and environmental regulation to deal with externalities and “market failures”,and clarifying environmental rights and interests,and creating pollution trading markets and internalizing governance costs.