政府创新驱动的城市垃圾分类政策执行模式变迁——基于双层关联协同框架分析

Changes in the implementation mode of urban garbage classification policies driven by government innovation:an analysis based on a dual-layer associated collaboration framework

垃圾分类政策执行是解决环境外部性问题的重要手段,而推进垃圾分类政策执行系统协同发展是提升垃圾治理水平的重要保障。基于系统理论,以杭州市江干区垃圾分类政策执行过程中地方政府、企业与社会多系统协同为研究对象,构建以“平行关联—互动关联”为基础的系统分析框架,阐释抽象系统理论与微观实践模式之间的内在联系。研究发现:①遵循制度、契约、志愿行为逻辑的多类型关联,既可能增强互补效应,也可能产生封闭倾向和冲突风险;②开放的系统具有适存性特点,垃圾分类政策执行系统的序化发展,体现了从平行关联向互动关联的进阶过程;③政策执行系统变迁离不开地方政府的创新推动,也依赖于共同理念、组织网络、技术条件等因素的支持。促进双层关联协同发展的措施包括:①增强政策执行过程的回应功能和协商功能,创造地方政府回应社会诉求的制度空间,改变政府与居民之间的话语悬置和价值分歧,构建协商性公共领域;②建构“分立”到“融合”的多类型关联机制,推动结构化角色安排和过程控制的“强联结”,建立以目标驱动和自主导向的“弱联结”,强化数字赋能环境治理的智能化、简约化、精准化;③发挥政府创新驱动的双层关联协同作用,推动多主体利益整合的政策创新,畅通多主体参与地方决策的途径,发挥正式规则与非正式规则的统摄作用。

systems theory and micro-level practical models.The study revealed that:①Associations of various types,adhering to the logic of systems,contracts,and voluntary actions,could enhance complementary effects.However,they could also lead to conservative tendencies,fostering resistance to external innovation and increasing conflict risks.②An open system characterized by adaptability showed the evolution of the garbage sorting policy implementation system,reflecting an advancement from parallel interconnections to interactive associations.③The transformation of the policy execution system was inseparable from the innovative drive of local governments and relied on support from shared visions,organizational networks,and technological conditions.Measures to promote the development of dual-layer associated collaboration include:①Enhancing the responsive and consultative functions of the policy execution process;creating institutional spaces for local governments to respond to social demands;addressing the discourse and value discrepancies between the government and residents;and constructing a consultative public sphere.②Building a multi-type associative mechanism that helps develop from‘separation’to‘integration;’promoting a‘strong linkage’in structured role arrangements and process controls;establishing a‘weak linkage’driven by goal orientation and autonomy;and working toward a more smart,simplified,and targeted digital empowerment in environmental governance.③Leveraging the dual-layer associated collaboration effect of government innovation;driving policy innovations that help consolidate the interests of multiple stakeholders;facilitating avenues for multi-stakeholder involvement in local decision-making;and capitalizing on the regulatory effects of both formal and informal rules.