我国生态脆弱民族地区空间冲突及治理机制研究
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摘要
伴随全球化发展,人类活动的空间联系不断加强,空间冲突问题引起了学术界等社会各界的广泛关注。国内外众多学者从不同的视角出发,研究了区域发展中存在的空间剥夺、资源开发冲突、经济利益冲突和环境问题冲突等诸多不协调问题,取得了一大批研究成果。然而,这些成果大多关注同一层级不同区域或群体之间基于自身利益,对有限资源的竞争而产生的一种水平方向上的矛盾和不协调关系,忽视了垂直方向上不同层级利益主体之间在具有相同利益目标条件下的空间冲突问题。我国地域辽阔,西部地区自然环境恶劣,实地调研工作难度较大,加上西部少数民族地区社会文化环境的特殊性,社会发展问题敏感,使得国内区域冲突相关研究主要集中在东部经济较发达地区,对西部地区空间冲突研究严重不足。此外,我国西部生态脆弱多为民族人口集中分布之地,占国土面积的比重较大,地区空间冲突相对较多,和谐稳定发展问题突出,急需因应之策。因此,探讨我国生态脆弱民族地区不同层级主体间的空间冲突问题,无论是对丰富以分析空间关系为己任的经济地理学理论研究,还是对解决我国西部地区的可持续发展现实问题,都具有重要意义。
本文在实地调研和阅读相关文献资料的基础上,评述了国内外区域冲突的相关研究成果,论述了我国生态脆弱民族地区空间冲突形成机理和类型特征,并结合实证资料,对甘肃省甘南藏族自治州空间冲突的类型、表现形式、形成机理和治理机制进行了深入研究,主要得出以下几点结论：
第一,我国西部的空间冲突主要表现为发生在不同空间尺度、不同层级行为主体之间的冲突矛盾。生态脆弱民族地区空间冲突是高层级行为主体主导的外部援助方式在地方推行过程中,与地方行为主体产生的各种矛盾和不协调关系。由于我国生态脆弱民族地区经济基础薄弱,其社会经济发展依赖外部支持,而独特的地域民族宗教文化和脆弱的自然生态系统决定了地方发展环境对外部扰动具有敏感性,使得具有共同发展目标的地方层级行为主体与外部高层级行为主体之间产生了空间冲突矛盾。这种空间冲突的根源是地方传统的民族习俗、宗教文化与外部世俗文化的冲突,并不是经济利益上的对立和冲突,这有别于现有的同一层级区域冲突相关研究。
第二,生态脆弱民族地区空间冲突是内生因素和外生因素共同作用的结果。首先,内生因素包括地方生态因素、经济因素和宗教文化因素。甘南藏族自治州的地方生态系统和经济系统的稳定性较差,加上居民大多信奉藏传佛教,对外部干预敏感性强；其次,外生因素包括全球化和区域空间层级关系。全球化指世界不同地区社会经济发展治理的共同性,其本质是通过同化力,促进资本和技术在各个空间尺度的顺利流通。在全球化背景下,工业化和城市化成为发展中国家和地区区域发展的主旋律。同时,从区域空间层级关系来看,我国“自上而下”分为中央、省市自治区、地州、县、乡镇等多个行政管理层次。中央制订的政策措施有时并不能完全适合某个低层级行政区域的具体情况。由于我国生态脆弱民族地区的经济、生态和宗教文化环境具有地域独特性,当上级行政主体制定的政策措施不太符合地方情况而强行实施时,就容易产生空间冲突矛盾。
第三,生态脆弱民族地区空间冲突可以分为不同的类型。根据上级和地方层级等行为主体以及社会、经济、生态等领域的不同,可以将我国生态脆弱民族地区空间冲突分为地方层级与高层级经济冲突、地方层级与高层级社会冲突和地方层级与高层级生态冲突等三种不同类型。甘南藏族自治州的空间冲突主要表现为高层级行为主体主导的生产方式变革、生活方式变迁和生态治理领域政策措施的地方不适应性,或实施效果不理想带来的冲突和矛盾。
第四,空间冲突的治理需要内部治理机制和外部治理机制同时发挥作用。我国生态脆弱民族地区空间冲突是由内生因素和外生因素共同作用产生的。笔者认为,仅依靠单一的地方力量或外部力量很难有效地治理空间冲突,空间冲突的治理与协调需要从构建内部治理机制和外部治理机制入手。在治理甘南藏族自治州空间冲突过程中,笔者认为,一方面应该注重发挥地方力量的积极作用,充分尊重、保留一些尊重自然、关注生态的优良文化传统习俗,充分发挥寺院等宗教群体在社会、经济和生态管理的积极作用,将宗教群体纳入到政府主导的公共管理轨道,实现传统宗教文化与现代管理方式的互补互动,引导地方当地藏族居民逐步接受现代化的生产和生活方式。另一方面,改进和完善外部援助方式和内容,将投资重点由当前的基础项目建设逐步转移到人才和文化交流的财政支持,建立以外部提供资金、内部决策重心下移、多管理层级合作的新型区际联动机制,提高投资项目、政策措施与当地州情、民情的有机联系,进而大幅度提升甘南藏族自治州的可持续协调发展能力和水平。
Spatial relationship has been closely along with the process of globalization, spatial conflicts between human activities have also been ubiquitous, and attracts widely attention of academic circles. Many scholars from different perspective studied spatial deprivation, resources exploitation conflicts, economic conflicts of interest, environment conflicts and other uncoordinated relationship between the process of regional development, but lots of research results concentrated in contradictions and discordant relations in the horizontal direction which happened between different regions or groups in the same hierarchy compete for limited resources based on their own interests, neglected spatial conflicts in the vertical direction which happened between interest groups in different hierarchy who have the same interest objectives. Because of harsh natural environment in the western region of China, spot investigation is relatively difficult to carry out, plus the social and cultural environment of the western minority areas has its particularity, and social development issues are also more sensitive to some extent, so that the correlation study of regional conflicts in China mainly concentrated in eastern economically developed regions, the western region is still in the research gaps. The formation and governance of spatial conflicts in ethnic areas with fragile ecological in western China are typical, so explore spatial conflicts between actors in different hierarchy in ethnic areas with fragile ecological in western China has important significance for theory innovation and practice of regional development.
Based on the review of domestic and overseas research achievements on regional development conflicts, this thesis systematically discussed formation mechanism, types and manifestations of spatial conflicts in ethnic areas with fragile ecological in China. On the basis of relevant literature and empirical study, this thesis further analyzed formation mechanism, types, manifestations and governance mechanism of spatial conflicts of Gannan Tibetan Autonomous Prefecture. This thesis got some new findings as follows:
Firstly, spatial conflicts in western China are collision relations between actors from different spatial scales and hierarchy, and spatial conflicts in ethnic areas with fragile ecological in China are contradiction relations between high-hierarchy actors and local actors during the implementation process of external aids in local led by high-hierarchy actors. Due to the weak economic foundation, socio-economic development of ethnic areas with fragile ecological in China needs the great support of external forces, but the peculiar local minority religious cultures and fragile natural ecosystems determines that local development environment is sensitive to external disturbances, so spatial conflict relations exist between local-hierarchy actors and high-hierarchy actors with the same development goal.
Secondly, spatial conflicts in ethnic areas with fragile ecological in China are formed by endogenous factors and exogenous factors. The endogenous factors include local ecological factors, economic factors, religious and cultural factors, and these factors can be simply summarized as instability structure of local ecosystems and economic system and the unique nature of ethnic and religious culture, which are more sensitive to external forces. The exogenous factors include globalization and regional hierarchical relationship. Globalization requires the commonality governance of the world's social and economic development, the essence of globalization is assimilatory power to promote the flow of capital and technology in various spatial scales, industrialization and urbanization have been the theme of regional development model in developing countries and regions. The different hierarchy of administrative regions in China formed a vertical structure with the highest hierarchy as a starting point, and through the middle hierarchy until the lowest hierarchy for endpoint, the policies and measures formulated by high hierarchy actors have universality, and cannot be entirely suitable for a specific low hierarchy administrative region. To sum up, the economic, ecological, religious and cultural environment of ethnic areas with fragile ecological in China has its own uniqueness, when the universal policies and measures formulated by high hierarchy actors spread in ethnic areas with fragile ecological, because of external strength are inconsistent with the actual of local, and then resulting in spatial conflict.
Thirdly, spatial conflicts in ethnic areas with fragile ecological in China have a variety of types and manifestations. There are two classification standards of spatial conflicts:actors and occur fields, the former includes local-hierarchy actors and high-hierarchy actors, the latter includes social, economic and ecological. According to the division standards, spatial conflicts in ethnic areas with fragile ecological can be divided into economic conflicts between local-hierarchy actors and high-hierarchy actors, ecological conflicts between local-hierarchy actors and high-hierarchy actors and social conflicts between local-hierarchy actors and high-hierarchy actors. Spatial conflicts of Gannan Tibetan Autonomous Prefecture mainly embodies in local non-adaptive of transformation of production, lifestyle changing and ecological governance measures which dominated by high-hierarchy actors, or the implementation effect of policy measures is not ideal.
Fourthly, governance of spatial conflicts requires internal governance mechanism and external governance mechanism play a role together. Because spatial conflicts in ethnic areas with fragile ecological in China are formed by endogenous factors and exogenous factors, so this thesis insists that rely only on the single force, whether local forces or external forces, is very difficult to achieve the purpose of spatial conflict governance. Base on the empirical study of Gannan Tibetan Autonomous Prefecture, this thesis point out that governance and coordination of spatial conflicts in Gannan should be concentrated in the following aspects:On the one hand, the governance of spatial conflicts should give full consideration to the positive role of local forces, and retain some local fine traditional culture of Gannan about respect for nature and ecological concerns during the regional development process. Local knowledge and actors should play a principal role in the social, economic and ecological fields, especially to play the role of the monks groups. Religious groups should be brought into public management track which is dominated by government to achieve the harmonious coexistence of traditional religious culture and modern management methods, and guid local actors to gradually accept the modern production mode and lifestyle; On the other hand, modality and contents of external aids need to be improved and perfected, changing from current investment in infrastructure projects to assistance of talents and cultural exchanges. A new external support-oriented inter-district linkage mechanism can be established to promote linkage effects of multi-management level, and the binding mode of external forces and Gannan should be adjusted incessant according to the actual demand of local socio-economic development. Thus the ability and level of coordinated development of Gannan Tibetan Autonomous Prefecture will be enhanced greatly.
本文在实地调研和阅读相关文献资料的基础上,评述了国内外区域冲突的相关研究成果,论述了我国生态脆弱民族地区空间冲突形成机理和类型特征,并结合实证资料,对甘肃省甘南藏族自治州空间冲突的类型、表现形式、形成机理和治理机制进行了深入研究,主要得出以下几点结论：
第一,我国西部的空间冲突主要表现为发生在不同空间尺度、不同层级行为主体之间的冲突矛盾。生态脆弱民族地区空间冲突是高层级行为主体主导的外部援助方式在地方推行过程中,与地方行为主体产生的各种矛盾和不协调关系。由于我国生态脆弱民族地区经济基础薄弱,其社会经济发展依赖外部支持,而独特的地域民族宗教文化和脆弱的自然生态系统决定了地方发展环境对外部扰动具有敏感性,使得具有共同发展目标的地方层级行为主体与外部高层级行为主体之间产生了空间冲突矛盾。这种空间冲突的根源是地方传统的民族习俗、宗教文化与外部世俗文化的冲突,并不是经济利益上的对立和冲突,这有别于现有的同一层级区域冲突相关研究。
第二,生态脆弱民族地区空间冲突是内生因素和外生因素共同作用的结果。首先,内生因素包括地方生态因素、经济因素和宗教文化因素。甘南藏族自治州的地方生态系统和经济系统的稳定性较差,加上居民大多信奉藏传佛教,对外部干预敏感性强；其次,外生因素包括全球化和区域空间层级关系。全球化指世界不同地区社会经济发展治理的共同性,其本质是通过同化力,促进资本和技术在各个空间尺度的顺利流通。在全球化背景下,工业化和城市化成为发展中国家和地区区域发展的主旋律。同时,从区域空间层级关系来看,我国“自上而下”分为中央、省市自治区、地州、县、乡镇等多个行政管理层次。中央制订的政策措施有时并不能完全适合某个低层级行政区域的具体情况。由于我国生态脆弱民族地区的经济、生态和宗教文化环境具有地域独特性,当上级行政主体制定的政策措施不太符合地方情况而强行实施时,就容易产生空间冲突矛盾。
第三,生态脆弱民族地区空间冲突可以分为不同的类型。根据上级和地方层级等行为主体以及社会、经济、生态等领域的不同,可以将我国生态脆弱民族地区空间冲突分为地方层级与高层级经济冲突、地方层级与高层级社会冲突和地方层级与高层级生态冲突等三种不同类型。甘南藏族自治州的空间冲突主要表现为高层级行为主体主导的生产方式变革、生活方式变迁和生态治理领域政策措施的地方不适应性,或实施效果不理想带来的冲突和矛盾。
第四,空间冲突的治理需要内部治理机制和外部治理机制同时发挥作用。我国生态脆弱民族地区空间冲突是由内生因素和外生因素共同作用产生的。笔者认为,仅依靠单一的地方力量或外部力量很难有效地治理空间冲突,空间冲突的治理与协调需要从构建内部治理机制和外部治理机制入手。在治理甘南藏族自治州空间冲突过程中,笔者认为,一方面应该注重发挥地方力量的积极作用,充分尊重、保留一些尊重自然、关注生态的优良文化传统习俗,充分发挥寺院等宗教群体在社会、经济和生态管理的积极作用,将宗教群体纳入到政府主导的公共管理轨道,实现传统宗教文化与现代管理方式的互补互动,引导地方当地藏族居民逐步接受现代化的生产和生活方式。另一方面,改进和完善外部援助方式和内容,将投资重点由当前的基础项目建设逐步转移到人才和文化交流的财政支持,建立以外部提供资金、内部决策重心下移、多管理层级合作的新型区际联动机制,提高投资项目、政策措施与当地州情、民情的有机联系,进而大幅度提升甘南藏族自治州的可持续协调发展能力和水平。
Spatial relationship has been closely along with the process of globalization, spatial conflicts between human activities have also been ubiquitous, and attracts widely attention of academic circles. Many scholars from different perspective studied spatial deprivation, resources exploitation conflicts, economic conflicts of interest, environment conflicts and other uncoordinated relationship between the process of regional development, but lots of research results concentrated in contradictions and discordant relations in the horizontal direction which happened between different regions or groups in the same hierarchy compete for limited resources based on their own interests, neglected spatial conflicts in the vertical direction which happened between interest groups in different hierarchy who have the same interest objectives. Because of harsh natural environment in the western region of China, spot investigation is relatively difficult to carry out, plus the social and cultural environment of the western minority areas has its particularity, and social development issues are also more sensitive to some extent, so that the correlation study of regional conflicts in China mainly concentrated in eastern economically developed regions, the western region is still in the research gaps. The formation and governance of spatial conflicts in ethnic areas with fragile ecological in western China are typical, so explore spatial conflicts between actors in different hierarchy in ethnic areas with fragile ecological in western China has important significance for theory innovation and practice of regional development.
Based on the review of domestic and overseas research achievements on regional development conflicts, this thesis systematically discussed formation mechanism, types and manifestations of spatial conflicts in ethnic areas with fragile ecological in China. On the basis of relevant literature and empirical study, this thesis further analyzed formation mechanism, types, manifestations and governance mechanism of spatial conflicts of Gannan Tibetan Autonomous Prefecture. This thesis got some new findings as follows:
Firstly, spatial conflicts in western China are collision relations between actors from different spatial scales and hierarchy, and spatial conflicts in ethnic areas with fragile ecological in China are contradiction relations between high-hierarchy actors and local actors during the implementation process of external aids in local led by high-hierarchy actors. Due to the weak economic foundation, socio-economic development of ethnic areas with fragile ecological in China needs the great support of external forces, but the peculiar local minority religious cultures and fragile natural ecosystems determines that local development environment is sensitive to external disturbances, so spatial conflict relations exist between local-hierarchy actors and high-hierarchy actors with the same development goal.
Secondly, spatial conflicts in ethnic areas with fragile ecological in China are formed by endogenous factors and exogenous factors. The endogenous factors include local ecological factors, economic factors, religious and cultural factors, and these factors can be simply summarized as instability structure of local ecosystems and economic system and the unique nature of ethnic and religious culture, which are more sensitive to external forces. The exogenous factors include globalization and regional hierarchical relationship. Globalization requires the commonality governance of the world's social and economic development, the essence of globalization is assimilatory power to promote the flow of capital and technology in various spatial scales, industrialization and urbanization have been the theme of regional development model in developing countries and regions. The different hierarchy of administrative regions in China formed a vertical structure with the highest hierarchy as a starting point, and through the middle hierarchy until the lowest hierarchy for endpoint, the policies and measures formulated by high hierarchy actors have universality, and cannot be entirely suitable for a specific low hierarchy administrative region. To sum up, the economic, ecological, religious and cultural environment of ethnic areas with fragile ecological in China has its own uniqueness, when the universal policies and measures formulated by high hierarchy actors spread in ethnic areas with fragile ecological, because of external strength are inconsistent with the actual of local, and then resulting in spatial conflict.
Thirdly, spatial conflicts in ethnic areas with fragile ecological in China have a variety of types and manifestations. There are two classification standards of spatial conflicts:actors and occur fields, the former includes local-hierarchy actors and high-hierarchy actors, the latter includes social, economic and ecological. According to the division standards, spatial conflicts in ethnic areas with fragile ecological can be divided into economic conflicts between local-hierarchy actors and high-hierarchy actors, ecological conflicts between local-hierarchy actors and high-hierarchy actors and social conflicts between local-hierarchy actors and high-hierarchy actors. Spatial conflicts of Gannan Tibetan Autonomous Prefecture mainly embodies in local non-adaptive of transformation of production, lifestyle changing and ecological governance measures which dominated by high-hierarchy actors, or the implementation effect of policy measures is not ideal.
Fourthly, governance of spatial conflicts requires internal governance mechanism and external governance mechanism play a role together. Because spatial conflicts in ethnic areas with fragile ecological in China are formed by endogenous factors and exogenous factors, so this thesis insists that rely only on the single force, whether local forces or external forces, is very difficult to achieve the purpose of spatial conflict governance. Base on the empirical study of Gannan Tibetan Autonomous Prefecture, this thesis point out that governance and coordination of spatial conflicts in Gannan should be concentrated in the following aspects:On the one hand, the governance of spatial conflicts should give full consideration to the positive role of local forces, and retain some local fine traditional culture of Gannan about respect for nature and ecological concerns during the regional development process. Local knowledge and actors should play a principal role in the social, economic and ecological fields, especially to play the role of the monks groups. Religious groups should be brought into public management track which is dominated by government to achieve the harmonious coexistence of traditional religious culture and modern management methods, and guid local actors to gradually accept the modern production mode and lifestyle; On the other hand, modality and contents of external aids need to be improved and perfected, changing from current investment in infrastructure projects to assistance of talents and cultural exchanges. A new external support-oriented inter-district linkage mechanism can be established to promote linkage effects of multi-management level, and the binding mode of external forces and Gannan should be adjusted incessant according to the actual demand of local socio-economic development. Thus the ability and level of coordinated development of Gannan Tibetan Autonomous Prefecture will be enhanced greatly.
引文
① 甘南藏族自治州人民政府.甘南藏族自治州2005—2008年农牧民工技能培训规划,2004.
① 甘肃省环境保护局.甘肃藏区生态建设与环境保护研究专题报告[R].2009.
① 甘肃省林业调查研究院.甘肃甘南黄河重要水源补给生态功能区生态保护与建设规划[R].2007.
① 甘肃省林业调查研究院.甘肃甘南黄河重要水源补给生态功能区生态保护与建设规划[R].2007.
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