上级政府激励与同级政府竞争——乡镇政府河道专项治理的实践逻辑

本文以豫北梨镇的河道专项治理的行动事件为分析文本,将河道治理作为一个"事件",放置于动态化的运动式治理"过程"平台之上,并采用半结构访谈法进行资料收集。在环境保护被各级政府越来越重视的情况下,尽管环境治理能够被列入市级政府的年度规划中,但是在政府的治理注意力分配不均及政府财政资金有限的情况下,基层政府常规环保治理的绩效有限,导致多年来难以彻底解决河滩违建养殖问题。在中央政府"清四乱"环保政策的指导下,市政府把财政资金向乡镇政府河道治理倾斜,乡镇政府则通过河道专项治理的方式成功完成治理任务,顺势转型为新型常规河道治理,有效地维持了河道专项治理的绩效。研究发现:上级政府的行政性政治激励、基层政府财政能力的纾解、基层政府的行政注意力分配、基层政府间的横向竞争等等,是乡镇政府河道专项治理大获成功的实践逻辑。基层政府的专项治理能够获得成功,需要上述条件的完备。

Incentive from Superior Government and Competition from Government at the Same Level:Practical Logic of River Regulation by Township Government

In this paper,we use the " action method" to analyze the " river regulation" as a " dynamic platform" of " river regulation". In the case of environmental protection being paid more and more attention by governments at all levels,although environmental governance can be included in the annual planning of municipal government,due to the uneven distribution of government attention and the limited government financial funds,the performance of routine environmental protection governance of grass-roots government is limited,which makes it difficult to completely solve the problem of illegal construction and breeding of river beach for many years. Under the guidance of the central government’s " four chaos" environmental protection policy,the municipal government inclines the financial funds to the township government’s river treatment,and the township government successfully completes the governance task through the special river regulation,and transforms into the new conventional river regulation according to the trend,effectively maintaining the performance of the river special governance. The results show that:the administrative political incentive of the higher level government,the relief of the financial capacity of the grass-roots government,the distribution of administrative attention of the grass-roots government,and the horizontal competition among the grass-roots governments are the practical logic of the great success of the special river regulation of the township government. The success of the special governance of grass-roots government requires the above conditions to be complete.