“竞争申请制”:可持续发展政策试点与央地关系重构

可持续发展目标(SDGs)的提出,开启了人类可持续发展领域最宏大的政策实验,也为开展国际视野的比较公共政策研究提供了难得机遇。执行SDGs及国家可持续发展政策需要处理好中央政府与地方政府间关系,而政策试点是协调这一关系的重要政策工具。已有文献对经济政策试点做了较充分的研究,然而对旨在实现经济、社会与环境协调的可持续发展政策试点,现有研究尚缺乏成型理论。在复杂央地关系格局下,对于需持续投入成本且成果难以界定的可持续发展政策试点,其具有怎样的不同于经济政策试点的机制?此外,众多西方学者将美国作为政策试点研究的制度基础并视其为“民主实验室”。然而,政策试点在以中国为代表的不同体制国家中同样存在,并以多样的机制发挥作用。那么,不同国家体制内的可持续发展政策试点又有哪些异同?政策试点影响下中国既有的央地关系发生了怎样的重构?对此,本文基于最典型案例原则,选取中国与美国响应SDGs分别开展的政策试点进行比较研究。笔者识别了不同体制下试点机制的异同,指出中国基于“竞争申请制”开展的可持续发展政策试点强化了中央部委与地方政府间关系,形成了地方官员的可持续发展激励,保障了政策试点的实施。     

中国低碳城市试点的政策设计逻辑

政策试点是中国国家治理策略体系的重要组成部分,是中国政府遵循“由点到面”逻辑以试验手段制定政策的一种常规性工作方法。低碳城市试点是中国应对气候变化战略的重要组成部分,通过选择不同类型、不同发展阶段、不同资源禀赋的地区开展试点,探索经济增长与碳排放脱钩的模式。现有文献侧重低碳城市建设的内涵、建设模式与路径、温室气体的核算方法、政策手段、峰值研究与达峰路径、效果评估等,有力地支持了低碳城市建设决策,但对于低碳城市试点的政策设计鲜有涉及。本文从政策过程理论、央地关系两个视角,结合府际学习与竞争关系,建构了中国低碳城市政策“试点–扩散”机制与政府行为的分析框架。中国的低碳城市试点具有探索型开拓性、综合型专业性、授权型自主性的特点,结合三批低碳城市试点的文件要求和实践进展,从政策试点的选点、设计、执行、监督和评估五个方面对于中国低碳城市试点进行了系统的梳理分析。相较于经济领域的其他政策试点,低碳城市政策试点具有弱激励弱约束的政策环境。地方政府基于自身的学习能力和领导力,在政策创新方面表现出争先、自主、效仿和守成四种行为特征,并以杭州、深圳、镇江、成都四个表率城市做了实证。政策“试点-扩散”的过程从本质上讲是中国政策创新与扩散的过程,可能在现实中需要往复多次进行,中国已陆续开展的三批低碳城市试点工作就遵循这样的政策逻辑。试点的意义是试出问题、解决问题、积累经验。从前三批试点城市评估结果来看,试点城市在低碳发展目标设定、转型路径探索和低碳发展动力转换等方面与社会的预期仍有差距,为此本文提出了推进低碳城市建设的四点建议:一是激发城市低碳发展的内生动力;二是完善低碳城市试点的科学论证机制;三是建立激励与约束并举的长效机制;四是强化市场公平竞争的政策导向。     

收入差距是否影响环境质量?——国内外研究综述

近年来,收入差距扩大与环境质量恶化成为许多国家同时面临的问题,也让一些经济学家开始思考,这两者之间是否存在关联。继20世纪90年代环境库兹涅茨曲线提出以来,一些研究发现不仅收入的绝对水平会对环境质量产生影响,收入差距对环境质量也有影响。本文对这一课题的理论研究进行了梳理,发现现有理论中收入差距对环境质量的影响途径主要有三条。第一条途径是消费者途径,即收入差距影响着以消费为主的个人经济行为,进一步影响着社会消费总量和消费结构,及其过程中产生的污染总量。第二条途径是企业途径,即认为收入差距的扩大会削弱环保型产品的正外部性,不利于环保技术的创新活动,对未来环境质量的改善产生动态影响。第三条途径是政府途径,即认为收入差距会影响相关的环境政策方式与强度选择;而且在不同的社会政策决策机制下,收入差距对环境政策的影响也是不同的,现有的社会决策机制分析框架主要有两种——权利权重型社会决策规则和简单多数规则。此外,本文还对现存的主要实证研究进行了总结,发现大多数研究结论都支持收入差距对环境质量存在着影响,但这种影响并不是线性的。一方面,收入差距对环境的影响与研究的污染物种类有关,大多数研究都显示,收入不平等对CO 2排放和土壤污染存在着负向影响,但有关收入差距对空气污染和水污染影响的研究结论并不统一或并不显著。另一方面,这种影响还与经济发展水平相关,在高收入国家与低收入国家是不同的,存在着阈值效应。最后本文总结了针对中国的研究现状,讨论了其在我国的适用性。     

海岛居民环境友好行为及其影响因素研究--以长岛县为例

海岛是海洋生态系统的重要组成部分,保护海岛生态环境是推进海洋生态文明建设、保护海洋生态环境的重要方面。海岛居民是保护海岛生态环境的主体之一,研究海岛居民环境友好行为的影响因素,引导和鼓励海岛居民主动采取环境友好行为是改善海岛生态环境的有效途径。本研究在梳理国内外相关文献的基础上,对海岛居民环境友好行为的概念、类型及影响因素进行理论分析,建立包含生态管理行为、消费行为、说服行为、公民行为四个环境友好行为变量,环境态度、环境保护知识、环境经历、社会政策、行为约束五个影响因素变量在内的理论模型。结合海岛生态环境和海岛居民的特点,设计海岛居民版环境友好行为测量量表,并在长岛县进行问卷调查,运用描述性统计分析、结构方程模型分析探究海岛居民环境友好行为的影响因素及影响因素间的内在关系。研究发现:①海岛居民环境友好行为总体水平差异较大,难度较低的环境友好行为实施较好,而难度较高的实施较差;影响因素变量中,环境态度积极,环境经历丰富,环境保护知识掌握较好,相关社会政策较为不利,行为约束偏中性。②环境态度、环境经历、社会政策对海岛居民环境友好行为具有显著正向影响。③环境保护知识对环境态度具有显著正向影响,但对海岛居民环境友好行为无显著影响,存在“知易行难”现象。行为约束对海岛居民环境友好行为无显著影响。④环境经历不仅直接影响海岛居民环境友好行为,而且通过环境态度对海岛居民环境友好行为施加间接影响。基于研究结论,提出了改善海岛居民环境友好行为的对策建议。     

农户从事生态循环农业意愿与行为的决定:市场收益还是政策激励?

发展生态循环农业是我国新时期转变农业发展方式的战略选择,农户是生态循环农业的经营主体和利益相关者,厘清农户参与生态循环农业的根本动机,对于制定有效的生态循环农业推广措施具有重要意义。文章基于湖北省391份农户调查数据,首先,在文献回顾的基础上提出市场收益、政策激励对农户生态循环农业从事意愿与行为影响路径的基本假设,并利用OLS方法分析市场收益和政策激励对农户从事生态循环农业意愿与行为的影响;其次,运用优势分析法评估市场收益类变量和政策激励类变量影响农户意愿与行为过程中的相对重要性;最后,通过交互效应检验市场收益类变量和政策激励类变量间的交互作用。结果表明:收入预期对农户从事生态循环农业的意愿与行为均有直接的积极影响,是促进农户从事生态循环农业的最重要的因素;焚烧秸秆惩罚政策和废弃物资源化补贴政策对农户从事生态循环农业的意愿有积极影响,沼气池建设补贴政策和废弃物资源化补贴政策对农户生态循环农业行为有促进作用;收入预期与废弃物资源化补贴政策在影响农户生态循环农业行为的过程中存在互补效应。本研究认为,市场收益是刺激农户采纳生态循环农业生产模式的首要因素,因此,要着力完善生态农业市场体系,增强生态农产品的市场竞争力,提升农户对生态循环农业的盈利信心;另外,政策激励对于农户采纳生态循环农业具有促进作用,应该做到约束与激励并行,同时注意加强农业政策的科学设计与落实执行。     

Dividing and Uniting Through Naming: The Case of North Carolina's Sea-Level-Rise Policy

Opponents of a proposed sea-level-rise policy in North Carolina, USA, reasoned rhetorically to promote a narrative claiming that the policy supporters’ efforts had failed to meet the criteria of “good” science and the American dream expectancy of “progress.” The critics worked to hinder policy adoption by naming as “villains” scientists who provided research to support the proposed policy. In addition, the opponents named their own efforts to prevent policy based on “bad” science that would “destroy” the American dream as “heroic.” To more effectively respond to such narratives, scientists and policy proponents need to shift away from reporting just climate change “facts” in the attempt to gain stakeholder support for mitigation and adaptation initiatives. They need to move toward reasoning rhetorically to construct narratives that encourage the public to name them as the “heroes” who will achieve the American dream by their actions to mitigate climate-change outcomes.     

基于政策工具的中国生物质发电补贴政策评估

生物质发电兼具环境效益与社会效益,对支撑中国推进能源消费革命和乡村振兴,实现碳达峰、碳中和目标具有重要意义。对截至2020年12月31日国家层面出台的生物质发电补贴相关政策进行梳理,运用政策工具理论与方法,从环境、供给、需求3个角度,研发、投资推广、原料资源、生产并网、消费5个环节评估生物质发电补贴政策的实施情况和存在问题,提出生物质发电补贴政策的优化建议。结果表明,现阶段生物质发电产业在研发、原料供应、基础设施领域补贴不足,财政补贴有逐步退坡并向市场机制转变趋势,但相应政策工具及制度创新尚存在欠缺。中国生物质发电补贴政策应在更多关注技术研发、充分涉及中间链条、完善激励机制等方面不断改进,并大力强化市场培育,在配套措施保障下引入市场机制,以促进产业长期可持续发展。     

No evidence of systematic pre-emptive loggings after notifying landowners of their lands’ conservation potential

Landowners can intentionally impair biodiversity values occurring on their land to pre-empt biodiversity protection. This often leads to significant negative effects on biodiversity. We studied whether landowners in Finland engaged in pre-emptive loggings after they were notified that their wooded mires are candidate sites for a mire protection program. After the notification, harvesting rates of the candidate wooded mires were significantly lower compared to harvesting rates of similar but non-candidate wooded mires. Annual and monthly harvesting rates indicated that notifying landowners of the conservation potential did not launch systematic pre-emptive logging behavior. Nevertheless, part of the candidate wooded mires were logged, so some landowners place more weight on other values than the biodiversity ones. Pre-emptive behavior has been observed in other studies suggesting that many country- or system-specific factors such as cultural background or level of compensation can affect landowners’ behavior.Electronic supplementary materialThe online version of this article (10.1007/s13280-020-01354-4) contains supplementary material, which is available to authorized users.     

Assessment of semi-natural habitats and landscape features on Irish farmland: New insights to inform EU Common Agricultural Policy implementation

Concerns over the loss of biodiversity and ecosystem services in farmland have prompted the development of agri-environment policy measures aimed at reducing farming pressure and maintaining semi-natural habitats in farmed landscapes. However, further knowledge is needed to guarantee successful agri-environment measures implementation. The current study assessed the quantity and the quality of semi-natural habitats in farms across a gradient of farming intensities in two contrasting regions in Ireland. Policy protection seemed fundamental for semi-natural habitats preservation. Habitats not protected by agricultural policy relied on extensive farming and are in danger of disappearing if they are intensified or abandoned. Due to the lack of policy incentives for habitat quality, no correlations were found between farming intensity and share of semi-natural habitats with habitat quality. Therefore, extensive farming and retention of habitats alone may not reverse the decline of farmland quality and biodiverisity and, thus, measures incentivising the environmental quality may be more successful.Electronic supplementary materialThe online version of this article (10.1007/s13280-020-01344-6) contains supplementary material, which is available to authorized users.     

Long-term changes in microbial water quality indicators in a hydro-power plant reservoir: The role of natural factors and socio-economic changes

Long-term changes, from 1984 to 2010, in the indicators of microbial pollution (total viable count, coliforms, Escherichia coli, enterococci, and Clostridium perfringens) are analysed in the Riga Hydropower Plant Reservoir, an essential source of drinking water for Riga, the capital of Latvia. Counts in microbial indicators fluctuated seasonally and were related to physicochemical parameters (nitrogen compounds, turbidity, temperature, and pH). The changes in microbial pollution were brought about by two major socio-economic developments. Firstly, Latvia’s independence from the USSR in 1991 which facilitated a distinct reduction in most microorganism counts due to a sharp decline in industrial and agricultural production. This resulted in a significant drop in point and nonpoint pollution in the river basin. A further development was Latvia joining the European Union in 2004. The corresponding focus on water management, including wastewater treatment, was a major priority of environmental investment and lead to improvements in microbial water quality.Electronic supplementary materialThe online version of this article (10.1007/s13280-020-01470-1) contains supplementary material, which is available to authorized users.