地方政府生态环境治理注意力研究——基于30个省市政府工作报告(2006—2015)文本分析

注意力代表着政府决策者对特定事务的关注,注意力的变化是政府决策选择变化的直接原因。环境治理注意力是环境治理进入议程设置,进而出台政策、实施治理的前提。政府工作报告是政府进行资源配置与精力投入的指挥棒,也是"政府将重视什么、哪些领域得到更多投入资源"的通知书和承诺书,它是政府注意力分配或者变化的重要载体。本文收集了30个省市地方政府自2006年到2015年共300份工作报告,通过文本分析方法,试图发现地方政府生态环境治理注意力的变化规律。分析结果呈现:1从时间轴上看,地方政府对于生态环境的注意力强度逐渐增加;2从地域轴上看,东、中、西部政府生态环境注意力差距并不明显,相比而言,中部处于一个稍低的位次;3从生态环境的范畴看,具体领域得到进一步扩展,中央与地方对环境具体事务保持了较高的一致性,注意力的变化与决策环境和中央宏观政策有重要相关关系。尽管在某些时间点,某些地域存在离散点,但总体而言,在中央政府强调经济发展需要与当地环境资源承载能力相协调的大背景下,地方政府将注意力大幅转向民生事务和生态环境。鉴于地方领导人任期以及注意力本身的"易变性",要保持地方政府环境治理注意力的强度和持续性,1增加制度供给,使环境治理成为法治常项;2将环境治理在公共事务治理的排序中前置,将环境治理放在突出位置;3提升环境事件的信息强度,向地方政府传导积极的环境治理压力。

Study on local government attention of ecological environment governance:Based on the text analysis of government work report in 30 provinces and cities (2006-2015)

Attention represents the focus of government decision-makers on specific issues.The change of attention is the direct cause of change in government decision-making.The attention of environmental governance is the premise of environmental governance into agenda setting, formulate the policy, and then implement the governance.The government work report is to guide government's allocation of resources and investment, is the promise of 'what the government will pay more attention to and which areas should be invested more resources', and is an important carrier of allocation or changes of government's attention.This article collects 300 work reports of local governments in 30 provinces and cities(2006-2015), and tries to find out the regular pattern of attention change of local governments' ecological environment governance through text analysis method.The analysis results shows that the strength of the attention of ecological environment of local governments are gradually increasing from the view of timeline.The gap of the attention of ecological environment of governments in China's eastern, western and central regions is hot obvious.In comparison, China's central region is in a lower level from the view of regional axis.The specific areas have been further expanded, the central and local environmental affairs maintain to a high degree of consistency, changes of attention have important relevance with decision-making environment and the central macro-policy from the coverage of ecological environment.Even in some point, there are discrete points in some areas, overall, local governments have turned their attention to livelihood and ecological environment in the context of economic development in conformity with the local governments' resources carrying capacity, which are emphasized by the central government.In view of public officials' tenure and the 'volatility' of the attention itself, it is necessary to maintain the intensity and continuity of the attention of local governments' environmental governance.First of all, increase the supply of the system so that the environmental governance will become a rule of law.Secondly, put the environmental governance in the front of public affairs management and put it in a prominent position.Last but not least, enhance the intensity of information on environmental events, and give positive pressure of environmental governance to local governments.