中央政府生态环境治理政策变迁的注意力分配及逻辑阐释

Attention Allocation and Logical Interpretation of the Changes of the Central Government's Ecological and Environmental Governance Policies

政府作为国家公共事务的管理者需要运用注意力这一稀缺性资源实现政府决策。推进生态环境治理已然成为中央政府重要的工作议题,文章以国务院1978—2022年《政府工作报告》为分析样本,基于注意力分配理论,借助ROSTCM6及QSR NVivo 11探究不同时期中央政府生态环境治理政策的注意力变迁。研究发现,注意力整体呈间断上升趋势并具有阶段性特征,大致经历了初步形成阶段——环境保护成为基本国策(1978—1991年)、间歇上升阶段——可持续发展成为国家战略(1992—2001年)、成熟发展阶段——“两型”社会成为长期战略(2002—2011年)以及高度集中阶段——生态文明建设深入推进(2012—至今)四次变迁。政策变迁逻辑遵循以“问题”为导向的因势而变、政府间利益调整下的“渐进式”变迁以及政策理念、焦点事件和公众协同推进三条主线,实现了从追求经济增长到建设生态文明的历史变迁。

As the manager of national public affairs,the government needs to use the scarcity of attention to achieve government decision-making.Promoting ecological environment governance has become an important work issue of the central government.Using the State Council's"Report on the Work of Government"from 1978 to 2022 as the analysis sample,based on the theory of attention allocation,this study explores the changes of attention in terms of the central government ecological environment governance policies in different periods using ROSTCM6 and QSR NVivo 11.The research has found that attention as a whole shows a intermittent upward trend with phased characteristics.It has roughly undergone four changes:the initial formation stage(1978-1991)when environmental protection became a basic national policy;the intermittent rise stage(1992-2001)when sustainable development became a national strategy;the mature development stage(2002-2011)when"two-oriented"society became a long-term strategy;and the high-concentration stage(2012-present)with deep promotion of ecological civilization construction.The logic of policy change follows three main lines:problem-oriented changes with the situation,gradual changes with the adjustment of intergovernmental interests,and the collaborative promotion of policy concepts,focus events,and the public.A historical change from pursuing economic growth to building ecological civilization has been achieved.