省级政府环境政策制定过程的特征分析——以陕西和云南水土保持生态补偿政策为例

近年来,省级政府制定的环境政策逐渐增多。在数量繁多的各类问题中,省级政府的决策者如何能够充分认识到某个环境问题的重要性和紧迫性,将其置于优先考虑的位置,进而出台一项环境政策?与经济发展政策相比,省级政府制定环境政策的过程有何特征?本文通过研究两个案例来探讨这些问题的答案,一个案例是陕西省制定的水土保持生态补偿政策,另一个案例是云南省正在制定的类似政策。研究表明,在省级政府制定环境政策的过程中,政策倡导者往往不是省级政府决策者,而是省级政府中行政主管部门的领导。政策倡导者建立政策的途径是说服作为决策者的省级政府相关领导,进而使之批准政策出台。其说服方法是建立由相关部门和其他利益相关者组成的支持联盟,通过科学研究阐明问题的重要性、紧迫性以及和政府职能的相关性,并提出具有科学基础和立法基础的政策方案。这一过程既区别于中央政府制定环境政策的过程,又与省级政府制定经济政策的过程不同。

An Analysis of Policymaking Process of Provincial Environmental Policy:Case Study of the Ecological Compensation Policy for Conservation of Water and Soil in Shannxi and Yunnan

More and more environmental policies have been established by provincial governments in China in recent years.When confronted with various problems,how can policymakers of provincial governments realize the relevance,significance and urgency of an environmental problem and approve a policy? What are the characteristics of the policymaking process of a provincial environmental policy compared with an economic policy? This paper focuses on two case studies to answer these questions.One is the ecological compensation policy for conservation of water and soil established by the government of Shaanxi province.The other one is a similar policy which is being established by the government of Yunnan province.The two cases demonstrate that policy entrepreneur in the policymaking process is head of the administrative department in charge of the problem,not the leader of the provincial government.The approach adopted by the administrative department to establish the policy is to persuade the leaders of the provincial government to approve the policy.In order to persuade the policymakers,the administrative department forms an advocate coalition which includes other departments of the provincial government and related stakeholders,and also conducts scientific research to summarize the relevance,significance and urgency of the problem and provides a policy draft based on scientific and legislative evidence.The policymaking process of an environmental policy in the provincial government is different from the corresponding process in the central government.It is also different from the policymaking process of economic policies in provincial governments.