从结构整合到过程协同:生态环境监管体制改革的限度与超越

From Structural Integration to Process Collaboration:Limitations and Transcendence of Ecological Environment Supervision System Reform

为应对生态环境监管体制内生的碎片化问题,中国长期推行一种以结构整合为核心的改革路径,强调以机构、职责和领导方式的整合性调整,化解条块分割张力,增强政府监管的整体性。但由于自身限度问题,结构整合并不能从根本上解决监管碎片化问题。近年来,随着改革的纵深推进,生态环境监管体制的结构整合已接近上限,边际收益下降和成本攀升以及强烈的干扰效应阻碍了稳定长效机制的形成。从“结构—过程”分析范式考察,当前中国生态环境监管体制的薄弱环节已主要不在结构层面,而是在过程层面。面向整体性生态环境监管体制之构建,未来改革不宜沿着结构整合的路径继续深化,而应将重心从结构整合转向过程协同,通过优化纵向层级间、横向部门间、地方政府间、政府条块间协同机制,进一步提升生态环境监管的整体性和有效性。

In order to address the international fragmentation of the ecological environmental supervision system,China has long implemented a reform centered on structural integration,emphasizing the integrated adjustment of institutions,responsibilities,and leadership style,resolving the tension of fragmentation,and enhancing the overall government supervision.However,due to its own limitations,structural integration cannot the problem of regulatory fragmentation.In recent years,with the deepening of reforms,the structural integration of the ecological environmental supervision system has reached its upper limit,facing the dilemma of declining marginal benefits and rising costs,and the strong interference effect has hindered the formation of a stable long-term mechanism.From the perspective of the structure-process analysis paradigm,the weak links in China′s current ecological environment supervision system are not at the structural level,but at the process level.For the construction of a comprehensive ecological environment supervision system,future reforms should not be deepened along the path of structural integration,but should shift the focus from structural integration to process coordination.By optimizing the coordination mechanism between vertical levels,horizontal departments,and local governments,the overall and effective ecological environmental supervision can be further enhanced.