制度变迁视角下对河长制的实施动因分析——以江苏省为例

河长制作为一种综合管理制度,明确了河湖治理的权利和责任,实现了外部性的内化与交易费用的降低,河长制的起源是内生性变化的结果,其制度变迁的过程受制于路径依赖的惯性及其所处的社会环境变化,河湖水质的改善和水治理能力现代化的提升验证了河长制是制度创新的成功实践。中国河湖治理制度的演进符合制度变迁的进程,河长制的实施是历史的必然选择。基于制度变迁理论,以首创河长制的江苏省为例,通过展开江苏省河湖治理政策的演变过程分析河长制的成效和实施动因,进而总结制度变迁理论为河长制变迁提供的启示。     

Fishing and farming at Lake Chad: institutions for access to natural resources.

Lake Chad is a vitally important wetland in the semi-arid Sahel corridor. It provides the basis of many thousands of livelihoods which depend on its seasonal fluctuations to renew fish stocks, farmland and rangeland. This paper describes how access to farmland and fishing rights has evolved on the Nigerian shore of the lake. The paper aims to assess the applicability of different institutional approaches to natural resource management on the lake shore. Although many recent approaches to natural resource management have reflected a 'Tragedy of the Commons' approach, a growing literature both in support and critical of Hardin's (1968) thesis has followed. Four distinct approaches are considered: (1) institutional intervention to prevent 'tragedy'; (2) institution erosion brought about by such interventions; (3) models of institutional adaptation to resource scarcity; and (4) approaches which perceive institutions as a crucial determinant of social and economic development. In examining which institutional approaches may be relevant at Lake Chad, it is anticipated that this paper will provide insights which will be relevant to policy-makers, resource managers and students working in environments where resource fluctuation inhibits stable property rights and state resource management has proved neither feasible nor successful. The western shore of Lake Chad has been under the jurisdiction of Borno State in its various guises since the end of the fourteenth century and is currently one of 36 states in the Federal Republic of Nigeria. Although the administrative status of Borno itself has varied, it has been dominated by a Kanuri aristocracy for most of its existence. The Kanuri administration has continued to operate in a remarkably similar way over the past 150 years. Traditionally, it has played a crucial role in allocating access to farm land. In recent years, the 'Kanuri administration' has not only maintained its pre-colonial authority over farming on the lake shore, but has expanded it to cover new areas of the lake floor and the increasingly lucrative fishing opportunities which federal government has been unable to regulate. This success suggests that collaboration with the organisations which operate such institutions could be beneficial, if not essential, to the success of natural resource management.     

Lake rehabilitation: A status report

The widespread recognition of lake degradation as a major environmental concern has led to accelerated efforts to better protect and manage lake resources. Where it is too late for avoidance strategies, lake rehabilitation is receiving increasing attention as a natural resources management option. In recent years, a significant number of lake rehabilitation experiences has been documented throughout the world, and many nations and states have embarked upon major lake rehabilitation programsLake rehabilitation is not a ready-to-go technology at this time and still must be regarded as partly experimental. Nevertheless, there have been a number of notably successful lake rehabilitation experiences. Reducing or halting the influx of undesirable materials is the sine qua non for lake rehabilitation. In most successful experiences to date, this has been accomplished by diversion and/or wastewater treatment. A number of in-lake strategies have also been employed to rehabilitate degraded lakes, often as part of an overall restoration plan. Techniques that appear to be most useful include dredging and nutrient inactivation. Several examples of successful applications are noted.Although efforts to rehabilitate lakes have produced a mixed record, there are encouraging results that suggest the viability of this approach. Lake rehabilitation, however, is no substitute for environmental management strategies that provide for protection of lake ecosystems in the first place.     

SUBSTATE INSTITUTIONAL INNOVATION FOR MANAGING LAKES AND WATERSHEDS: A WISCONSIN CASE STUDY1

ABSTRACT: Since the 1970s, there has been extensive experimentation with new approaches to water and land resources management at the state and local levels. There is a critical need to document, assess, and synthesize lessons learned from the nation's recent experience with subnational institutional changes in environmental management. This paper examines institutional changes aimed at more integrated water and related resources management at the substate level of government. We describe innovative institutional changes in a case study of Dane County, Wisconsin, and assess the implementation and preliminary consequences of these changes. Dissatisfaction with watershed and lake management results and perceptions of institutional inadequacy led to significant changes in the structure and rules for county resources management. A new entity was created to focus watershed management responsibilities. The scope of authority and powers were expanded. However, these changes all occurred within the framework of a general purpose unit of government. The new institutional arrangements have achieved a number of milestones, although it is premature to fully assess resource outcomes. The substantive changes, implementation tactics, and overall experience in Dane County's reforms - especially with regard to addressing intergovernmental tensions and decentralized management, limited authorities and funding, and public and constituency support - have useful implications for other substate efforts at more comprehensive and integrated water resources management.     

Sustainable rural development in Sokoto State, Nigeria

In Nigeria, as in most countries, institutional barriers to successful rural development exist and need to be addressed. In Sokoto State, a variable and unpredictable Sahelian climate in combination with conditions of high population growth, low levels of income, and environmental degradation, create and intensify institutional challenges. This study examines the sustainability of government initiatives regarding the provision of agricultural inputs, assistance and extension services to farmers, and the extent to which agency efforts are coordinated and integrated, particularly regarding water management. In some cases, rural development agencies demonstrated the capability to meet the needs of the people. Some farmers were satisfied with government assistance and in some areas the tube well programme was quite successful. Yet in Sokoto State many institutional barriers to sustainable rural development exist and need to be addressed. In general, implementation strategies and management procedures appeared narrowly focused and placed little emphasis on coordination and integration among rural development agencies. The result was often inappropriate overlap or oversights in activities .     

Toward Integrated Environmental Management for Challenges in Water Environmental Protection of Lake Taihu Basin in China

Lake Taihu is the third largest freshwater lake in China. It serves many social, economic, and ecological purposes in the drainage basin. Unfortunately, the water has been heavily polluted due to rapid industrialization and urbanization during the last two decades. Notwithstanding great efforts made so far to improve the water quality, the environmental situation is still far from being optimistic. The basin and the lake are facing a range of severe environmental challenges: rapid socio-economic development continues to place great pressures on the environment, current pollution control projects have many problems from the viewpoint of effectiveness and efficiency of their implementations, and the non-point sources of pollution such as agricultural fields, for which control is more difficult than for industrial point sources, have become the main contributors to serious eutrophication of the lake. Considering the characteristics of the environmental challenges and problems confronting the basin and the lake, we focus on integrated environmental management (IEM) as a promising and effective approach to overcome these predicaments. Current practices and problems of environmental management in the basin are examined, and potential future developments are discussed. Three aspects of the IEM are emphasized: institutional cooperation, public participation, and internalization of environmental externalities. We think these are the most critical for not only the basin but also for the whole of China to achieve a sustainable society.     

Fisheries in Chilika lake: how community access and control impacts their management

The status of fisheries in Chilika lake on the east coast of India is in a critical state. Local fishing communities feel that catches have reduced significantly and they face more hardships now to sustain their livelihoods. The study presents findings from field research and argues that notions of access are linked to community perceptions of the resource, the extent of authority they have to make decisions related to access and use rights and the traditional management strategies. State interventions through mechanization and new regulations have undermined the traditional management strategies leading to conflicts between different stakeholders and decline in traditional fisheries. There is a growing realization that without traditional fishing community's participation it is not possible to ensure sustainable use of the lake resources. Legitimizing community access and use rights is one of the key factors for successful management of fisheries.     

Use of wetlands for water quality improvement under the USEPA Region V Clean Lakes Program

The United States Environmental Protection Agency (USEPA) Region V Clean Lakes Program employs artificial and modified natural wetlands in an effort to improve the water quality of selected lakes. We examined use of wetlands at seven lake sites and evaluated the physical and institutional means by which wetland projects are implemented and managed, relative to USEPA program goals and expert recommendations on the use of wetlands for water quality improvement. Management practices recommended by wetlands experts addressed water level and retention, sheet flow, nutrient removal, chemical treatment, ecological and effectiveness monitoring, and resource enhancement. Institutional characteristics recommended included local monitoring, regulation, and enforcement and shared responsibilities among jurisdictions. Institutional and ecological objectives of the National Clean Lakes Program were met to some degree at every site. Social objectives were achieved to a lesser extent. Wetland protection mechanisms and appropriate institutional decentralization were present at all sites. Optimal management techniques were employed to varying degrees at each site, but most projects lack adequate monitoring to determine adverse ecological impacts and effectiveness of pollutant removal and do not extensively address needs for recreation and wildlife habitat. There is evidence that the wetland projects are contributing to improved lake water quality; however, more emphasis needs to be placed on wetland protection and long-term project evaluation.     

Sustainable coastal resources management: principles and practice

Coastal zones are currently experiencing intense and sustained environmental pressures from a range of driving forces. Responsible agencies around the globe are seeking ways of better managing the causes and consequences of the environmental change process in coastal areas. This article discusses the basic principles underpinning a more integrated approach to coastal management, as well as the obstacles to its implementation in both developed and developing countries. The fulfilment of the goal of sustainable utilisation of coastal resources via integrated management is likely to prove to be difficult. Any successful strategy will have to encompass all the elements of management from planning and design through financing and implementation. An interdisciplinary analytical and operational approach is also required, combined with a more flexible and participatory institutional structure and emphasis to account for multiple stakeholders and resource demands. As historical and institutional perspectives as well as socio-economic and cultural contexts are also important, two case studies (based on UK and Vietnamese experiences) are presented in order to identify arguments and examine these aspects in more detail.     

如何完善河长制——基于与流域综合管理比较的视角

当前,河长制已成为我国进行河湖管护的综合协调平台,但其面临一系列问题,制约了我国河湖管护效果的进一步提升。世界主要国家的跨部门、跨利益相关方河湖管理协调政策主要是流域综合管理。河长制与流域综合管理都是针对所面临的河湖管理问题,经过长期的演变,逐渐形成的跨区域、跨利益相关方的协调政策,这都是符合所在国家实际情况的。基于公共政策学的基本原理,本文构建了以"政策目标—政策执行者—政策工具"为导向的三维河湖管护协调政策比较框架。通过此框架,分析了河长制存在的主要问题,以及河长制与流域综合管理的主要差异。针对河长制存在的主要问题,基于比较结果提出了相关对策,主要包括:科学设定政策目标,推进多元共治的河湖管护模式,创新运用市场化和信息化政策工具。     

BUILDING THE AGENDA FOR INSTITUTIONAL RESEARCH IN WATER RESOURCE MANAGEMENT1

ABSTRACT: This paper pursues more specifically the recommendations of a recent National Research Council report recommending greater attention to research on institutions in the field of water resource management. The important challenge for the future in institutional research lies in going beyond the observation that institutions are important and in explaining instead how institutions actually affect management options and outcomes. It is possible to illuminate the relationships between institutional features and water management through comparative institutional research. This paper offers recommendations for studying water institutions in a comparative context, including methodological recommendations concerning approaches to comparative institutional research, and topics for comparative institutional research that appear especially fruitful at this time. The example of conjunctive management is used to illustrate the importance of institutional factors in water management, drawing to some extent on the authors’ recent experience with a comparative study of conjunctive management institutions.     

A Review of Range Production and Management Extension Activities in Kenya

The paper presents an overview of the development of range management extension activities in Kenya. The status quo of range management activities is discussed with particular reference to extension infrastructure, scope of extension interventions and mechanisms of dissemination of these innovations. On the basis of the nature of available innovations and efficiency of dissemination mechanisms, the paper emphasizes the need for future institutional reforms to facilitate successful application of technological interventions, validation of the Kenyan innovation Diffusion Model and enhancement of the social acceptability of technological interventions. This revised version was published online in August 2006 with corrections to the Cover Date.     

The planning and management of African river and lake basin development and conservation

The success of river and lake basin development and management is rooted in the knowledge of its resources, both physical and human. Within the framework of an integrated basin plan, each economic sector depends on the adequacy of such data for its individual development. The management and conservation of the basin itself in turn depends on knowing the requirements of those sectors and their probable impact on each other and on the status of the basin's resources, its ecology and environment. The development of African river basin resources is subject to various constraints, some for physical and climatic reasons, others tied to socio-cultural characteristics and the priorities of national economies. These are reflected in financial, manpower and institutional limitations, problems of finding technologies suited to specific local conditions and concern for human health. The scale and complexity of river basin development make it difficult to predict precise outcomes of planned proposals, but a progressive approach which links long-term activities with achievable, shorter term production projects offers prospects for ultimate success.     

Changes in Public Commons as a Consequence of Urbanization: The Agara Lake in Bangalore,India

The city of Bangalore in southern India is rapidly expanding, resulting in major transformations in land use, wetland management, and the distribution of green spaces. This paper examines how transformations in land use and governance consequent to urbanization can change people’s perceptions of and interactions with an urban ecological commons, using the case study of the Agara lake in the south Indian city of Bangalore. In less than four decades, the landscape surrounding the lake has altered from a fundamentally agricultural area, dependent on the lake for irrigation and drinking water, to a densely urbanized area where the lake is used predominantly for recreation. A change in governance from community management to state management has sidelined the fishers, fodder collectors and agricultural users who traditionally maintained this lake. The governmental agencies that are supposed to maintain the lake are unable to do so due to a complex governance structure, with overlapping jurisdictions, compounded by an ongoing litigation. Over the past decades, the lake has largely transitioned into an urban green space primarily used for recreation and nature watching. This case study provides us with a broader understanding of how changes in governance consequent to urbanization and city expansion can impact interactions between people and ecological commons in a rapidly growing Indian city.     

美国湖泊调查评价技术及对我国湖泊生态环境管理的启示

自2006年起,美国环保署(EPA)在美国本土开展了两次湖泊生态状况调查和评估,从营养状态、生物健康和休闲娱乐的关键指标开展评估,旨在摸清美国湖泊生态环境现状和影响湖泊生态健康的关键胁迫因子。EPA逐步形成了涵盖水文、水质、水生生物等多重指标在内的湖泊调查评估体系,该体系已成为美国湖泊环境管理系统的重要组成部分,为湖泊环境保护和水生态系统恢复提供了有力支持。本文从清单建立、重点调查湖泊清单筛选、采样布点、监测指标、评估方法等方面系统研究总结美国湖泊调查评估的关键技术方法体系,以期为我国湖泊生态环境保护和环境管理工作提供借鉴。     

Local Capacity for Groundwater Protection in Ontario

Preventing groundwater contamination is vastly cheaper than remediation. Recognizing this, attention in water and land management agencies in North America increasingly turn to groundwater protection. Local agencies, such as municipalities and watershed management districts, are vital to successful groundwater protection, but they face daunting challenges. In the United States, senior governments have recognized these challenges and provide considerable support for local agencies. In Ontario, Canada, local agencies are, to a much greater extent, on their own. The aims in this paper are to analyze factors that shape local capacity for groundwater protection, focusing on Ontario, and to recommend avenues for capacity building. Interrelationships among five dimensions of capacity (technical, financial, institutional, social, and political) are explored through an analysis of three smaller Ontario communities: City of Guelph (population 93,400), Town of Orangeville (population 22,188), and Town of Erin (population 11,000). Size clearly influences capacity for groundwater protection. However, other considerations unrelated to size appear to be as important. These other factors include the ability to form horizontal and vertical linkages with external agencies, political leadership and commitment, and citizen involvement. Thus, smaller communities in Ontario (and other jurisdictions with limited senior government support) would do well to focus on these areas at the same time as they develop their technical, financial, and institutional capacity.     

PLANNING METHODOLOGY FOR ANALYSIS AND MANAGEMENT ON LAKE EUTROPHICATION1

ABSTRACT: The effects of changing nutrient inputs through land use management, waste water treatment, or effluent diversion are not clear, and managers are discovering that decisions which were effective in reversing eutrophication for one lake are often unsuccessful when applied to another. Simple empirical relationships are often used to predict the impact of management decisions. Errors in estimation could result in either substantial costs for overdesign or failure to meet desired eutrophication levels. This paper presents and illustrates a methodology to evaluate the impact of land use and water resource management decisions on lake eutrophication. The problems of worth of additional information, and uncertainty of estimates were handled within a cost-effectiveness framework. The probability of exceeding a critical level of eutrophication was considered as a measure of effectiveness. The cost criterion is the expected value of opportunity costs, costs of analysis and costs of additional information. Uncertainty analysis techniques were used to estimate the effectiveness of various management alternatives. Bayesian methods can be utilized to determine the worth of additional information. The methodology was applied to Beseck Lake, Connecticut, and the cost and effectiveness measures estimated for a number of land management alternatives. Worth of additional information was not determined in this initial effort in uncertainty analysis for lake eutrophication management.     

Nipped in the Bud: Why Regional Scale Adaptive Management Is Not Blooming

Adaptive management is an approach to managing natural resources that emphasizes learning from the implementation of policies and strategies. Adaptive management appears to offer a solution to the management gridlock caused by increasing complexity and uncertainty. The concept of adaptive management has been embraced by natural resource managers worldwide, but there are relatively few published examples of adaptive management in use. In this article, we explore two watershed management projects in southeastern Australia to better understand the potential of adaptive management in regional scale programs through qualitative, case study–based investigation. The program logic of one case implies the use of passive adaptive management, whereas the second case claims to be based on active adaptive management. Data were created using participant observation, semistructured interviews with individuals and groups, and document review. Using thematic content and metaphor analysis to explore the case data, we found that each case was successful as an implementation project. However, the use of both passive and active adaptive management was constrained by deeply entrenched social norms and institutional frameworks. We identified seven “imperatives” that guided the behavior of project stakeholders, and that have consequences for the use of adaptive management. Reference to recent evaluations of the Adaptive Management Areas of the Pacific Northwest of the United States suggests that some of these imperatives and their consequences have broad applicability. The implications of our findings are discussed, and suggestions for improving the outcomes of regional scale adaptive management are provided.     

Expanding the Range of Choice in Water Management: An Evaluation of Policy Approaches

This paper examines the ‘range of choice’ concept in water management. Although many efforts have been made to design policies that broaden the consideration of water resources alternatives, the experiences gained from these policy experiments have not been adequately assessed. What insights might American policy approaches offer for developing countries? To address this question, four general policy types were identified and compared: (1) comprehensive single-objective policies; (2) comprehensive multiple-objective policies; (3) specific non-structural policies; and (4) specific technological policies. Case studies of each approach revealed that effective institutional development occurs when policies are: (1) stated in clear and specific language; (2) modified as experience is gained; (3) adequate in terms of statutory and administrative authority; and (4) subject to an orderly process of public and judicial review. The most successful policy efforts to date have involved specific alternatives, while multiple-objective policies have encountered the most difficulties. Common institutional problems are identified, and their potential relevance for developing countries is discussed.     

Sediment-based investigation of naturally or historically eutrophic lakes -- implications for lake management

Implementation of the EU Water Framework Directive will call for new lake monitoring and management strategies. Therefore, different methods need to be tested in order to achieve reliable assessment of lake background conditions and water quality. Sediment-based techniques provide one such tool for lake management. In this work, 10 lakes, presumed to be naturally eutrophic, were investigated with a paleolimnological short core study. The aim of the study was to examine the composition of the diatom assemblages in their natural state, estimate their change over time and assess the background nutrient levels. One sediment profile from each lake was divided into six sub-samples that were analyzed for diatoms (60 samples). Diatom-based inference models were applied to reconstruct the past total phosphorus concentration and assess the eutrophication. The results indicated that all the lakes studied had already been nutrient-rich before the impact of modern agriculture. However, diatom assemblages have changed remarkably over time and total phosphorus concentrations have generally increased, so at present only two of the study lakes are close to their natural status. This suggests that naturally eutrophic lakes will probably require management actions to fulfill the new directive requirements in the future.