世界各国是如何执行全球可持续发展目标(SDGs)的?
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摘要
全球可持续发展目标(SDGs)明确指出了2015—2030年全球发展的目标和方向。然而,该项议程的执行和落实却面临着重重挑战,执行进展也饱受质疑。基于此,本文从公共政策执行的视角出发,对2016年和2017年已经参与联合国可持续发展高级别政治论坛(HLPF)的64个国家进行了梳理和总结,依据在SDGs执行中发挥主导作用的行为主体区分了四种执行模式:政府主导、社会主导、共同治理与执行阻滞模式。文章以中国、瑞典、日本和博茨瓦纳为例,重点比较和分析了这四种执行模式的实现形式和治理特点。研究显示:(1)不同国家SDGs执行模式的选择与其资源条件高度相关,包括经济发展水平、政治支持环境与社会组织发育程度;(2)国家层面的SDGs执行模式仍处于动态演化过程中,政府主导模式与社会主导模式都出现一些向共同治理模式演化的趋势;(3)参与意愿和能力不足的发展中国家更可能陷入SDGs执行阻滞。观察和比较不同SDGs执行模式有助于我们拓展对于公共管理视角下全球治理的理解,促进国际社会更有针对性地解决SDGs执行中所面临的问题。同时,也为中国推动进一步落实SDGs提供实践参考与借鉴。
Global Sustainable Development Goals( SDGs) have clearly pointed out the goals and directions for global development in2015-2030. However,the progress to achieve SDGs has been seriously questioned as SDGs implementation faced many challenges.From the perspective of policy process,this paper scrutinizes 64 national voluntary reports which were presented at the High Level Political Forum( HLPF) in 2016 and 2017. In particular,four implementation modes have been distinguished: government-led implementation,society-led implementation,collaborated implementation,and implementation failure. Taking China,Sweden,Japan and Botswana as examples,this paper compares and analyzes implementation form and governance characteristics of each mode. This study shows that,first,the mode of SDGs implementation is highly correlated with its national resource conditions,i. e.,economic development stage,political and social environment. Second,national implementation mode evolves in a dynamic way. Both the governmentled mode and society-led mode are moving and evolving towards the collaborated governance mode. Third,developing countries with insufficient willingness and ability are more likely to fail in implementing the SDGs. This paper aims to contribute in expanding our understanding of global governance from the perspective of public administration and addressing practical problems in the SDGs implementing process. It also proposes policy suggestions for promoting SDGs implementation in both China and other countries.
Global Sustainable Development Goals( SDGs) have clearly pointed out the goals and directions for global development in2015-2030. However,the progress to achieve SDGs has been seriously questioned as SDGs implementation faced many challenges.From the perspective of policy process,this paper scrutinizes 64 national voluntary reports which were presented at the High Level Political Forum( HLPF) in 2016 and 2017. In particular,four implementation modes have been distinguished: government-led implementation,society-led implementation,collaborated implementation,and implementation failure. Taking China,Sweden,Japan and Botswana as examples,this paper compares and analyzes implementation form and governance characteristics of each mode. This study shows that,first,the mode of SDGs implementation is highly correlated with its national resource conditions,i. e.,economic development stage,political and social environment. Second,national implementation mode evolves in a dynamic way. Both the governmentled mode and society-led mode are moving and evolving towards the collaborated governance mode. Third,developing countries with insufficient willingness and ability are more likely to fail in implementing the SDGs. This paper aims to contribute in expanding our understanding of global governance from the perspective of public administration and addressing practical problems in the SDGs implementing process. It also proposes policy suggestions for promoting SDGs implementation in both China and other countries.
引文
[1]潘家华,陈孜.2030年可持续发展的转型议程:全球视野与中国经验[M].北京:社会科学文献出版社,2016:67.
[2]诸大建.世界进入了实质性推进可持续发展的进程[J].世界环境,2016(1):19-21.
[3]朱云汉.王道思想与世界秩序重组[J].中国治理评论,2012(2):122.
[4]薛澜.促进全球可持续发展的三大支柱[J].求是,2015(19):63-64.
[5]彭斯震,孙新章.后2015时期的全球可持续发展治理与中国参与战略[J].中国人口·资源与环境,2015(7):2-3.
[6]孙新章.中国参与2030年可持续发展议程的战略思考[J].中国人口·资源与环境,2016,26(1):1-7.
[7]薛澜,翁凌飞.中国实现联合国2030年可持续发展目标的政策机遇和挑战[J].中国软科学,2017(1):2-3.
[8]KENNY C,DUNNING C.What's the point of the post-2015agenda?[R/OL].[2018-06-21].https://www.cgdev.org/blog/what%E2%80%99s-point-post-2015-agenda.
[9]薛澜.促进全球可持续发展的三大支柱[J].求是,2015(19):63-64.
[10]薛澜,俞晗之.迈向公共管理范式的全球治理---基于“问题-主体-机制”框架的分析[J].中国社会科学,2015(1):80-84.
[11]拉斯洛·松鲍法维.人类风险与全球治理:我们时代面临的最大挑战可能的解决方案[M].北京:中央编译出版社,2012:1-110.
[12]SALAMON L M.The new governance and the tools of public action:an introduction[J].Fordham urban law journal,2000,28(5):1612-1613.
[13]薛澜,俞晗之.迈向公共管理范式的全球治理---基于“问题-主体-机制”框架的分析[J].中国社会科学,2015(11):86.
[14]MORDASINI M.Implementing global public policies:are the aid agencies walking the talk?[C]//CARBONNIER G.International development policy:aid,emerging economies and global policies.London:Palgrave Machmillan,2012:19,25.
[15]International Evaluation Group.The World Banks'involvement in global and regional partnership programs[R/OL].[2018-07-05].https://www.oecd.org/derec/worldbankgroup/48296274.pdf.
[16]肯尼斯·华尔兹.国际政治理论[M].上海:上海人民出版社,2003.
[17]肯尼斯·华尔兹.国际政治理论[M].信强,译.上海:上海人民出版社,2003:132-134.
[18]刘伟.探索国际公共政策的演化路径---基于对全球气候政策的考察[J].世界经济与政治,2013(7):114.
[19]刘伟.国际公共政策的扩散机制与路径研究[J].世界经济与政治,2012(4):40-58.
[20]RAUSTIALA K,VICTOR D G.The regime complex for plant genetic resources[J].International organization,2004,58(2),2004:305.
[21]KEOHANE R O,VICTOR D G.The regime complex for climate change[J].Perspectives on politics,2011,9(1):14-17.
[22]KENNETH W A,SNIDAL D.The governance triangle:regulatory standards institutions and the shadow of the state[C]//MATTLIW,WOODS N.The politics of global regulation.Princeton and Oxford:Princeton University Press,2009:69.
[23]刘倩,范雯嘉,张文诺,等.全球气候公共物品供给的融资机制与中国角色[J].中国人口·资源与环境,2018,28(4):8-16.
[24]曾文革,党庶枫.《巴黎协定》国家自主贡献下的新市场机制探析[J].中国人口·资源与环境,2017,27(9):112-119.
[25]薛澜,俞晗之.迈向公共管理范式的全球治理---基于“问题-主体-机制”框架的分析[J].中国社会科学,2015(1):76.
[26]诸大建.可持续性科学:基于对象-过程-主体的分析模型[J].中国人口·资源与环境,2016,26(7):1-9.
[27]徐进,刘畅.中国学者关于全球治理的研究[J].国际政治科学,2013(1):96.
[28]刘伟.探索国际公共政策的演化路径---基于对全球气候政策的考察[J].世界经济与政治,2013(7):114.
[29]SNYDER F.Soft law and institutional practice in the European Community[J].Natural gas&oil,1994,79(5):2400-2410.
[30]PERSSON,WEITZ N,NILSSON M.Follow-up and review of the sustainable development goals:alignment vs.internalization[J].Review of European comparative&international environmental law,2016,25(1):59-68.
[31]BOURGON J.A new synthesis of public administration:serving in the 21st Century[M].Canada:Mc Gill-Queen's University Press,2011:56-57.
[32]BOURGON J.A new synthesis of public administration:serving in the 21st Century[M].Canada:Mc Gill-Queen's University Press,2011:16-18.
[33]燕继荣.协同治理:社会管理创新之道---基于国家与社会关系的理论思考[J].中国行政管理,2013(2):58-61.
[34]VLEUTEN A.Pincers and prestige:explaining the implementation of EU Gender Equality Legislation[J].Comparative European Politics,2005,3(4):464-488.
[35]GOUREVITCH P.Politics in hard times:comparative responses to international economic crises[M].Ithaca,New York:Cornell University Press,1986:1-63.
[36]VLEUTEN A.Pincers and prestige:explaining the implementation of EU gender equality legislation[J].Comparative European politics,2005,3(4):464-488.
[37]俞可平.让国家回归社会---马克思主义关于国家与社会的观点[J].理论视野,2013(9):9-11.
[38]燕继荣.协同治理:社会管理创新之道---基于国家与社会关系的理论思考[J].中国行政管理,2013(2):58-61.
[39]SDSN.SDG index and dashboards report 2018:global responsibilities[R/OL].[2018-9-18].http://www.sdgindex.org/as sets/files/2018/01%20SDGS%20GLOBAL%20EDITION%20WEB%20V9%20180718.pdf.
[40]习近平.谋共同永续发展做合作共赢伙伴[N/OL].(2015-9)[2018-06-22].http://politics.people.com.cn/n/2015/0927/c1024-27638350.html.
[41]外交部.中国落实2030年可持续发展议程国别方案[N/OL].(2016-9)[2018-06-22].http://www.fmprc.gov.cn/web/ziliao_674904/zt_674979/dnzt_674981/qtzt/2030kcxfzyc_686343/P020161012715836816237.pdf.
[42]人民日报.首批国家可持续发展议程创新示范区建设启动[N/OL].(2018-3)[2018-06-22].http://www.xinhuanet.com/politics/2018-03/24/c_1122583670.htm?baike.
[43]外交部.中国落实2030年可持续发展议程进展报告[N/OL].(2017-8)[2018-06-22].http://www.fmprc.gov.cn/web/ziliao_674904/zt_674979/dnzt_674981/qtzt/2030kcxfzyc_686343/P020170824649973281209.pdf.
[44]Sweden Government.Sweden and the 2030 Agenda:report to the UN High Level Political Forum 2017 on Sustainable Development[R/OL].[2018-06-22].https://www.government.se/49f428/contentassets/400a118a14b94750a61e42b620a9def9/sweden-andthe-2030-agenda-report-to-the-un-high-level-political-forum-2017-on-sustainabl-edevelopment.pdf.
[45]Sustainable Development Solutions Network.SDG index and dashboards report 2017:global responsibilities:international spillovers in achieving the goals[R/OL].[2018-06-22].http://www.sdgindex.org/.
[46]SDGs Promotion Headquarters.Japan's voluntary national review report on the implementation of the Sustainable Development Goals[R/OL].[2018-06-22].https://www.mofa.go.jp/files/000287390.pdf.
[47]Republic of Botswana.Botswana voluntary national review on Sustainable Development Goals 2017[R/OL].[2018-06-22].https://sustainabledevelopment.un.org/content/documents/16397BOTSWANA_VNR.pdf.
(1)参与2016年与2017年联合国HLPF的国家共计64个,其中多哥同时参与了2016年和2017年论坛,本文以其2017年提交报告为准。本项研究将64个国家官方报告作为主要文本分析材料,项目组聘请了三位外语助教,分别对西班牙语、法语和俄语报告进行审阅和分析。其中,西班牙语报告国家包括巴拿马、秘鲁、委内瑞拉、阿根廷、洪都拉斯、危地马拉、萨尔瓦多、哥斯达黎加、智利、墨西哥、哥伦比亚;法语报告国家包括多哥、卢森堡、摩纳哥、乌拉圭、贝宁;俄语报告国家为白俄罗斯;其余国家为英语报告,报告分析由本文第一作者完成。
[2]诸大建.世界进入了实质性推进可持续发展的进程[J].世界环境,2016(1):19-21.
[3]朱云汉.王道思想与世界秩序重组[J].中国治理评论,2012(2):122.
[4]薛澜.促进全球可持续发展的三大支柱[J].求是,2015(19):63-64.
[5]彭斯震,孙新章.后2015时期的全球可持续发展治理与中国参与战略[J].中国人口·资源与环境,2015(7):2-3.
[6]孙新章.中国参与2030年可持续发展议程的战略思考[J].中国人口·资源与环境,2016,26(1):1-7.
[7]薛澜,翁凌飞.中国实现联合国2030年可持续发展目标的政策机遇和挑战[J].中国软科学,2017(1):2-3.
[8]KENNY C,DUNNING C.What's the point of the post-2015agenda?[R/OL].[2018-06-21].https://www.cgdev.org/blog/what%E2%80%99s-point-post-2015-agenda.
[9]薛澜.促进全球可持续发展的三大支柱[J].求是,2015(19):63-64.
[10]薛澜,俞晗之.迈向公共管理范式的全球治理---基于“问题-主体-机制”框架的分析[J].中国社会科学,2015(1):80-84.
[11]拉斯洛·松鲍法维.人类风险与全球治理:我们时代面临的最大挑战可能的解决方案[M].北京:中央编译出版社,2012:1-110.
[12]SALAMON L M.The new governance and the tools of public action:an introduction[J].Fordham urban law journal,2000,28(5):1612-1613.
[13]薛澜,俞晗之.迈向公共管理范式的全球治理---基于“问题-主体-机制”框架的分析[J].中国社会科学,2015(11):86.
[14]MORDASINI M.Implementing global public policies:are the aid agencies walking the talk?[C]//CARBONNIER G.International development policy:aid,emerging economies and global policies.London:Palgrave Machmillan,2012:19,25.
[15]International Evaluation Group.The World Banks'involvement in global and regional partnership programs[R/OL].[2018-07-05].https://www.oecd.org/derec/worldbankgroup/48296274.pdf.
[16]肯尼斯·华尔兹.国际政治理论[M].上海:上海人民出版社,2003.
[17]肯尼斯·华尔兹.国际政治理论[M].信强,译.上海:上海人民出版社,2003:132-134.
[18]刘伟.探索国际公共政策的演化路径---基于对全球气候政策的考察[J].世界经济与政治,2013(7):114.
[19]刘伟.国际公共政策的扩散机制与路径研究[J].世界经济与政治,2012(4):40-58.
[20]RAUSTIALA K,VICTOR D G.The regime complex for plant genetic resources[J].International organization,2004,58(2),2004:305.
[21]KEOHANE R O,VICTOR D G.The regime complex for climate change[J].Perspectives on politics,2011,9(1):14-17.
[22]KENNETH W A,SNIDAL D.The governance triangle:regulatory standards institutions and the shadow of the state[C]//MATTLIW,WOODS N.The politics of global regulation.Princeton and Oxford:Princeton University Press,2009:69.
[23]刘倩,范雯嘉,张文诺,等.全球气候公共物品供给的融资机制与中国角色[J].中国人口·资源与环境,2018,28(4):8-16.
[24]曾文革,党庶枫.《巴黎协定》国家自主贡献下的新市场机制探析[J].中国人口·资源与环境,2017,27(9):112-119.
[25]薛澜,俞晗之.迈向公共管理范式的全球治理---基于“问题-主体-机制”框架的分析[J].中国社会科学,2015(1):76.
[26]诸大建.可持续性科学:基于对象-过程-主体的分析模型[J].中国人口·资源与环境,2016,26(7):1-9.
[27]徐进,刘畅.中国学者关于全球治理的研究[J].国际政治科学,2013(1):96.
[28]刘伟.探索国际公共政策的演化路径---基于对全球气候政策的考察[J].世界经济与政治,2013(7):114.
[29]SNYDER F.Soft law and institutional practice in the European Community[J].Natural gas&oil,1994,79(5):2400-2410.
[30]PERSSON,WEITZ N,NILSSON M.Follow-up and review of the sustainable development goals:alignment vs.internalization[J].Review of European comparative&international environmental law,2016,25(1):59-68.
[31]BOURGON J.A new synthesis of public administration:serving in the 21st Century[M].Canada:Mc Gill-Queen's University Press,2011:56-57.
[32]BOURGON J.A new synthesis of public administration:serving in the 21st Century[M].Canada:Mc Gill-Queen's University Press,2011:16-18.
[33]燕继荣.协同治理:社会管理创新之道---基于国家与社会关系的理论思考[J].中国行政管理,2013(2):58-61.
[34]VLEUTEN A.Pincers and prestige:explaining the implementation of EU Gender Equality Legislation[J].Comparative European Politics,2005,3(4):464-488.
[35]GOUREVITCH P.Politics in hard times:comparative responses to international economic crises[M].Ithaca,New York:Cornell University Press,1986:1-63.
[36]VLEUTEN A.Pincers and prestige:explaining the implementation of EU gender equality legislation[J].Comparative European politics,2005,3(4):464-488.
[37]俞可平.让国家回归社会---马克思主义关于国家与社会的观点[J].理论视野,2013(9):9-11.
[38]燕继荣.协同治理:社会管理创新之道---基于国家与社会关系的理论思考[J].中国行政管理,2013(2):58-61.
[39]SDSN.SDG index and dashboards report 2018:global responsibilities[R/OL].[2018-9-18].http://www.sdgindex.org/as sets/files/2018/01%20SDGS%20GLOBAL%20EDITION%20WEB%20V9%20180718.pdf.
[40]习近平.谋共同永续发展做合作共赢伙伴[N/OL].(2015-9)[2018-06-22].http://politics.people.com.cn/n/2015/0927/c1024-27638350.html.
[41]外交部.中国落实2030年可持续发展议程国别方案[N/OL].(2016-9)[2018-06-22].http://www.fmprc.gov.cn/web/ziliao_674904/zt_674979/dnzt_674981/qtzt/2030kcxfzyc_686343/P020161012715836816237.pdf.
[42]人民日报.首批国家可持续发展议程创新示范区建设启动[N/OL].(2018-3)[2018-06-22].http://www.xinhuanet.com/politics/2018-03/24/c_1122583670.htm?baike.
[43]外交部.中国落实2030年可持续发展议程进展报告[N/OL].(2017-8)[2018-06-22].http://www.fmprc.gov.cn/web/ziliao_674904/zt_674979/dnzt_674981/qtzt/2030kcxfzyc_686343/P020170824649973281209.pdf.
[44]Sweden Government.Sweden and the 2030 Agenda:report to the UN High Level Political Forum 2017 on Sustainable Development[R/OL].[2018-06-22].https://www.government.se/49f428/contentassets/400a118a14b94750a61e42b620a9def9/sweden-andthe-2030-agenda-report-to-the-un-high-level-political-forum-2017-on-sustainabl-edevelopment.pdf.
[45]Sustainable Development Solutions Network.SDG index and dashboards report 2017:global responsibilities:international spillovers in achieving the goals[R/OL].[2018-06-22].http://www.sdgindex.org/.
[46]SDGs Promotion Headquarters.Japan's voluntary national review report on the implementation of the Sustainable Development Goals[R/OL].[2018-06-22].https://www.mofa.go.jp/files/000287390.pdf.
[47]Republic of Botswana.Botswana voluntary national review on Sustainable Development Goals 2017[R/OL].[2018-06-22].https://sustainabledevelopment.un.org/content/documents/16397BOTSWANA_VNR.pdf.
(1)参与2016年与2017年联合国HLPF的国家共计64个,其中多哥同时参与了2016年和2017年论坛,本文以其2017年提交报告为准。本项研究将64个国家官方报告作为主要文本分析材料,项目组聘请了三位外语助教,分别对西班牙语、法语和俄语报告进行审阅和分析。其中,西班牙语报告国家包括巴拿马、秘鲁、委内瑞拉、阿根廷、洪都拉斯、危地马拉、萨尔瓦多、哥斯达黎加、智利、墨西哥、哥伦比亚;法语报告国家包括多哥、卢森堡、摩纳哥、乌拉圭、贝宁;俄语报告国家为白俄罗斯;其余国家为英语报告,报告分析由本文第一作者完成。
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