地方政府碳达峰行动方案政策注意力配置研究——基于31省(自治区、直辖市)政策文本的分析

A Study on Policy Attention Allocation of Local Governments’Carbon Peak Action Programs——An Analysis Based on Policy Texts in 31 Provinces

实现碳达峰是新时代经济社会高质量的重要战略目标。基于注意力配置视角,构建碳达峰战略管理三角作用框架,对我国31省(自治区、直辖市)2020-2023年121份碳达峰行动方案进行文本量化分析,从政策对象、政策主体、政策工具三大维度分析各地碳达峰行动方案政策注意力配置现状、特征及其治理逻辑。研究发现:在政策对象上,政策注意力配置呈现“重工业生产、轻农业发展”的配置格局;在政策主体上,表现出政府主导、主体间作用发挥不均衡的配置特征;在政策工具上,政策工具的运用存在选择偏好以及内部结构注意力配置的不对称性。进一步分析可以发现,地方政府的政策注意力配置呈现出外部绩效考核压力下的注意力竞争、内生发展动力驱动下的学习借鉴,以及内外部动力互动作用下实现自主创新的治理逻辑。完善我国地方政府碳达峰政策体系需突出政策对象的区域针对性和差异性、提高政策主体的参与性和联动性、增强政策工具间的协调性和融合性。

Achieving peak carbon is an important strategic goal of high economic and social quality in the new era.Based on the perspective of attention allocation,we constructed a triangular role framework for strategic management of carbon peak,quantitatively analyzed 121 carbon peak action plans of 31 provinces(autonomous regions and municipalities directly under the central government)from 2020 to 2023,and analyzed the status quo of the policy attention allocation of the carbon peak action plans in each province,its characteristics and its logic of governance from the three major dimensions of the policy object,the policy subject,and the policy tool.The study finds that:in terms of policy objects,the allocation of policy attention presents a configuration pattern of“heavy industrial production and light agricultural development”;in terms of policy subjects,it shows the configuration characteristics of government domination and unbalanced play of the role of the subjects;and in terms of policy tools,there are selective preferences in the use of policy tools and asymmetry in the allocation of internal structural attention.Asymmetry.Further analysis reveals that the policy attention allocation of local governments presents the governance logic of attention competition under the pressure of external performance appraisal,learning and borrowing driven by endogenous development power,and realizing autonomous innovation under the interactive role of internal and external power.To improve the carbon peak policy system of local governments in China,it is necessary to highlight the regional pertinence and difference of the policy object,improve the participation and linkage of the policy subject,and enhance the coordination and integration among the policy tools.