部际节能减排政策博弈与协同关系的演进分析

摘要/Abstract

摘要：

政府内部的跨部门协同是协同治理的核心内容之一。是否可以通过研究节能减排政策发文领域的部际合作关系演进来探究跨部门间的博弈与协同显然值得深入研究。本文通过收集1978年以来由国务院各部委颁布的1493条节能减排政策，基于政策文本解释了各部门在政策措施选择方面的差别及联系；以七次国务院机构改革为时间节点，运用社会网络分析法研究了各阶段政策颁布部门之间的合作关系，探讨了政策发文过程中政策措施选择方面的合作现象及部门博弈与协同的内在成因。研究表明：（1）部门特点、政策目标和各部门在部际合作中所处的地位是影响各部门政策措施选择的核心因素；（2）节能减排政策制定部门的部际合作关系越来越紧密，并逐渐形成了以“发改委-环保部-财政部”为核心的联合发文网络。部际合作关系的演进过程中贯穿着部门之间的博弈与协同，而其背后的原因在于部门追求利益与履行职责之间的冲突和协调；（3）环保部门与其他部门的合作次数及广度明显上升，其合作逐渐演化成“轴心-辐条”的网络结构特征。文章还从打破部门等级界限、明确责任归属、完善部门绩效评价体制及全面提升部门协同参与积极性的角度提出了促进节能减排政策部门协同的相关建议。

关键词: 节能减排, 政策措施, 部际协同, 合作网络

Abstract:

Cross-sectoral collaboration within the government is one of the core contents of collaborative governance. Analyzing the inter-ministerial cooperation relationship of energy-saving and emission reduction policy makers is a good way to explore the relationship of game and coordination between the departments. In this paper, we collect 1493 energy-saving and emission-reduction policies issued by the central ministries and commissions from 1978 to 2016 firstly, and then we analyze the distinction and contact among departments in the choice of policy measures based on the policy text. After this, we use the seven State Council institutional reforms as a time node to study the inter-ministerial relationship by social network analysis. At the same time, we put forward the cooperation network between the energy-saving and emission-reduction policy makers at various stages, present the departmental cooperation network through the visualization technology, and discuss the cooperation phenomenon of the policy measures selection and the internal causes of the game and cooperation. The research shows that:(1) The characteristics of the department, the policy objectives and the department's position in the inter-ministerial cooperation are the core factors influencing the choice of the policies. The characteristics of the department and the position of each department in the inter-ministerial cooperation determine the scope of the choice of policy measures, and the policy objectives determine departments' specific choice of policy measures; (2) The inter-ministerial co-operation between energy-saving and emission-reduction policy makers is more and more close, and a joint policy-making network consisting mainly of three departments:National Development and Reform Commission, Ministry of Environmental Protection and Ministry of Finance, has gradually come into being. Game and coordination between departments runs through the evolution of inter-ministerial cooperation, and the reason behind it is the conflict and coordination between the pursuit of interests and the performance of the duties; (3) The number of cooperation and breadth of cooperation between the Ministry of Environmental Protection and other departments has increased significantly, and the cooperation has gradually evolved into the "axis-spoke" network. This paper also puts forward the relevant suggestions on how to promote the coordination of energy conservation and emission reduction policy makers by breaking the departmental hierarchy and clarifying the responsibility attribution, enhancing the department performance evaluation system and comprehensively improving the department's participation.

Key words: energy-saving and emission-reduction, policy measures, interdepartmental collaboration, cooperative network

张国兴, 李佳雪, 管欣. 部际节能减排政策博弈与协同关系的演进分析[J]. , 2019, 31(12): 250-263.

Zhang Guoxing, Li Jiaxue, Guan Xin. Evolution Analysis of Inter-ministerial Cooperation Based on Energy-saving and Emission-reduction Policies[J]. , 2019, 31(12): 250-263.

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