我国海洋管理碎片化困境及整体治理逻辑分析

The Study on Integrated Marine Governance Fragmentation Dilemmaand Holistic Governance Logic in China

不论海洋水体的流动性、海洋系统的开放性还是海洋空间的立体性都要求海洋整体治理。更为重要的,海洋治理目标的特殊性也决定了其整体治理的必要性。本文首次尝试以整体性治理的视角探究我国海洋综合管理。调研发现,我国海洋治理存在着严重的碎片化困境:供给导向上,管理需求供给多,公共需求供给少;供给主体上,政府供给多,市场、社会供给少;供给种类上,治疗性服务多,预防性服务少;供给模式上,一站式不足,分散化严重;供给质量上,海洋公共服务过剩与不足并存。而造成我国海洋治理碎片化困境的缘由:一是治理主体碎片化:治理主体多元和单一所造成了碎化;二是治理功能分化:海洋治理功能交叉、重叠、缺位、实现功能手段单一导致碎片化;三是治理文化裂化:部门协同意愿不足、协同观念异化、协同信任缺失干扰海洋整体治理。由此,本文认为,应在央地两级设立高层次协调机构;部门合并重组为扁平网状层级;主体结构扩展鼓励参与式治理;摒弃结构表象整合为权力重组,实现结构性整合。通过跨界合作制度化、信息共享机制化和绩效评估整体化完成程序性整合。而经由内化一致的行为系统,再造信任的行为氛围达成价值性整合。

Due to the particularity of its governance object,integrated marine governance determines the necessity of the marine holistic governance.More importantly,the particularity of governance objectives also determines the necessity of its holistic governance.In order to practice sea power strategy,the central and local governments have carried on the marine governance innovatively in our country.Oceanic public service is improved,but it still remains some problems.For example,from the view of the oceanic public service,marine governance still faces a serious predicament of fragments in our country:in the supply oriented,the providing of management demand is more than the providing of public demand;in the main body of supply,government supply is more than the market supply and society supply;in the type of public service,therapeutic service is more than preventive services;in the model of public service,the one-stop service is insufficient with serious fragmentation;in the quality of the public service,oceanic public service is surplus and insufficiency.However,there are three reasons causing the serious predicament of fragments in marine governance.Firstly,the fragmented governance objects:the fragmentation is caused by the multivariate or single of governance object.Secondly,the differentiated governance functions:the fragmentation is caused by cross,overlap,absence,single function means in ocean governance.Thirdly,the cracked governance culture:the integrated marine governance is interfered by the shortage of department synergism willing,the alienation of collaborative concept,the lack of synergism trust.Therefore,this paper suggests that the central and local governments shall establish a high level coordination agency;the departments merge and recombine becoming flat net hierarchy;the major structure extends in encouragement of participatory governance;the structure appearance is consolidated into power restructuring achieving structural integration.The procedural integrated is completed integrally with cross-cutting cooperation institutionalization,information sharing mechanism,government performance measurement.And the value-conformity is based on the enhancement of the mutual trust relationship and the establishment of uniform behavior standard.