跨域治理中的政策执行困境——以我国流域水资源保护为例

在中国公共政策研究的领域，对跨层级和跨部门的政策执行现象关注不足。多数文献从“自上而下”的角度出发，过于强调事权的划分，而忽略了中央与地方、地方与地方、各职能部门之间的复杂策略互动与权力分享，从而得出“进一步加大中央控制”的政策建议，使政府治理陷入“收权放权”的怪圈。本文以水资源保护为例，首先讨论我国流域水资源保护的制度基础与政策执行困境；其次从纵向跨层级的视角分析地方政府政策执行偏差；再次从横向跨部门的视角分析权力冲突和信息阻隔对政策执行产生的负面影响。本文认为。集权式的治理机制无法应对跨层级、跨部门的复杂政策议题，有效的政策执行还需要进行更深层的政治结构调整，形成良性沟通协作的机制。

Policy Implementation Obstacles in Cross-boundary Governance:Rethinking of River Basin Management in China

In China’s public policy research area,very few study are focused on Multi-level and Multi-sector policy Implementation Phenomenon.Most of literature adopted ’up-down’ perspective,only concerned about Central-local relationship,and neglected the complex interaction of different groups and sectors in local level.And then give a wrong conclusion on further improve central control,and make government trapped in a vicious circle.This article takes river basin management in China as an example,first review institutional development of water management system from 1950s;secondly,I discussed policy implementation from hierarchical perspective,and the relationship between policy decision and implementation;thirdly,I examined policy implementation from horizontal perspective,which including conflicts between different sectors and ministries.I argued that centralized governance structure of China was difficult to deal with cross-boundary issue.We should bring different stakeholders into policy process,and redesign participation mechanism,and build good channels to enhance collaboration.