“条”“块”不对称：跨界海域环境治理政策失灵的制度归因——以《渤海碧海行动计划》为例

跨界海域环境治理因为涉及到多个部门和不同区域,在政策的具体执行中采用的是科层制管理方式。条块分割、职责明确、文牍主义是科层制组织高效管理的最基本要素。但是,在环渤海环境治理政策制定和实施的过程中,因为＂条＂和＂块＂的不对称等原因,科层制管理中出现的官僚主义作风、各部门间的敷衍推诿、各地方政府间的利益冲突和地方执行机关的形式主义等导致了政策失灵。《渤海环境保护总体规划》的实施在同样的制度环境中将遭遇与《渤海碧海行动计划》失效的同样困境,其结果必然体现为政策失灵。

The Institutional Attribution for the Policy Failure in the Environmental Governance of Transboundary Waters

The environmental governance of transboundary waters involves many departments and regions,and adopts bureaucratic management to implement specific policies.Departmental and regional division,well-defined responsibilities and red-tapism are fundamental elements for the efficient management of bureaucratic organizations.However,in the process of policy formulation and implementation,the policy failure results from bureaucratic style of work,perfunctory buck-passing among different departments,the conflict of interest among local governments,and formalism among local executive agencies.One of the most important reasons is the asymmetry of departments and regions.＂The General Plan of Environmental Protection of Bohai Sea＂,implemented in the same institutional environment as that of ＂The Plan of Cleaning Bohai Sea＂,will meet with the similar plight of policy failure.