基于“管制平衡”的草原生态补偿政策参与式干预发展评价研究
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摘要
从整体性治理理论视角出发,深入分析了草原生态补偿政策实施过程中的管制与治理维度,认为草原生态补偿政策是一个"管制平衡"导向型政策,进而提出从"参与式干预发展"的角度对该政策的实施效果进行综合性评价。基于内蒙古锡林郭勒典型草原的一个纯牧业嘎查(村庄)的案例研究,将参与式干预发展评价(PADev)方法的应用进行了详细呈现,并获得了兼具"形成性"和"主体间性"的综合性评价结论与发现。为验证PADev的适合性和科学性,从"元评价"的角度,进一步呈现了基于生态调研和抽样社会调查的评价,作为PADev方法的"验证性"评价。案例研究发现,草原生态补偿政策的地位和作用体现在"草-畜-人"历史性(长达35年,从1983年牲畜承包开始)发展变迁的结构关系中,从政策作用的末端来评价生态补偿政策所产生的生态效益,比较难以直接确定其因果关系,但从基于制度变迁的路径依赖及未来发展的角度,政府主导的生态补偿政策将积极地促进牧民们的自主整合和适应市场的发展,以及"生态载畜量"和"实际载畜量"的收敛趋同。
From the perspective of the holistic governance theory,the dimensions of regulation and governance in the implementation of the grassland ecological compensation policy( GECP) were thoroughly analyzed in this study,which deduced that GECP is a"regulation balance"oriented policy,and a comprehensive evaluation for GECP's implementation effect is necessary. Thereafter, the method of "participatory assessment development " evaluation( PADev) is recommended. Based on the case study of a pure husbandry village in the typical grassland of Xilinguole,Inner Mongolia,this study presented the application of the PADev method in detail and obtained comprehensive evaluation conclusions with both"formative"and"inter-subjectivity"focuses. To verify the suitability of PADev for the evaluation of GECP,this study further presented the other evaluations based on the ecological survey and sampling social survey from the perspective of a"meta-evaluation",as a supplement to the"progressive"evaluation of the PADev method. Case studies showed that the status and role of GECP is embodied in the historic development and structural changes of "grass-livestock-human"( up to35 years,starting from the livestock contracting policy in 1983). It is difficult to directly determine the causal relationshipbetween the ecological benefits of GECP from the present situation. However,from the perspective of path dependence and future development based on institutional change,the government-led GECP will actively promote herdsmen' s selfintegration and adaption to the modern market,as well as the convergence between"Ecological livestock carrying capacity"and "Actual livestock carrying capacity".
From the perspective of the holistic governance theory,the dimensions of regulation and governance in the implementation of the grassland ecological compensation policy( GECP) were thoroughly analyzed in this study,which deduced that GECP is a"regulation balance"oriented policy,and a comprehensive evaluation for GECP's implementation effect is necessary. Thereafter, the method of "participatory assessment development " evaluation( PADev) is recommended. Based on the case study of a pure husbandry village in the typical grassland of Xilinguole,Inner Mongolia,this study presented the application of the PADev method in detail and obtained comprehensive evaluation conclusions with both"formative"and"inter-subjectivity"focuses. To verify the suitability of PADev for the evaluation of GECP,this study further presented the other evaluations based on the ecological survey and sampling social survey from the perspective of a"meta-evaluation",as a supplement to the"progressive"evaluation of the PADev method. Case studies showed that the status and role of GECP is embodied in the historic development and structural changes of "grass-livestock-human"( up to35 years,starting from the livestock contracting policy in 1983). It is difficult to directly determine the causal relationshipbetween the ecological benefits of GECP from the present situation. However,from the perspective of path dependence and future development based on institutional change,the government-led GECP will actively promote herdsmen' s selfintegration and adaption to the modern market,as well as the convergence between"Ecological livestock carrying capacity"and "Actual livestock carrying capacity".
引文
[1]李英.实施草原生态保护补助奖励机制政策存在的问题、成因分析及几点建议.草业与畜牧,2015,(3):60-62.
[2]张倩.草原生态补助奖励机制的经济激励效果分析.甘肃社会科学,2016,(5):234-238.
[3]李静芳.我国地方公共政策评估现状与对策.行政论坛,2001,(6):13-15.
[4]詹国彬.我国公共政策评估的现状、困难及对策.江西行政学院学报,2002,4(2):8-11.
[5]王小鹏,赵成章,王晔立,张建强.基于不同生态功能区农牧户认知的草地生态补偿依据研究.中国草地学报,2012,34(3):1-5.
[6]巩芳,王芳,长青,刘鑫.内蒙古草原生态补偿意愿的实证研究.经济地理,2011,31(1):144-148.
[7]韦惠兰,宗鑫.草原生态补偿政策下政府与牧民之间的激励不相容问题——以甘肃玛曲县为例.农村经济,2014,(11):102-106.
[8]王曙光,王丹莉.减贫与生态保护:双重目标兼容及其长效机制——基于藏北草原生态补偿的实地考察.农村经济,2015,(5):3-8.
[9]祁晓慧,高博,王海春,周杰,乔光华.牧民视角下的草原生态保护补助奖励政策草畜平衡及禁牧补奖标准研究——以锡林郭勒盟为例.干旱区资源与环境,2016,30(5):30-35.
[10]宋向阳,郑淑华,图力古尔,萨仁格日勒,乌日乐格,刘巍,李俊海.生态补偿政策评价研究进展.草原与草业,2018,30(1):18-25.
[11]牛昉.退耕还林还草参与式评估研究.西安:西北大学出版社,2007.
[12]魏雯,徐柱,师尚礼,田青松,王慧萍,柳剑丽.基于参与式方法的农牧户生计现状评估——以内蒙古太仆寺旗为例.应用生态学报,2011,22(10):2686-2692.
[13]杨光梅,闵庆文,李文华,甄霖.我国生态补偿研究中的科学问题.生态学报,2007,27(10):4289-4300.
[14]李文华,刘某承.关于中国生态补偿机制建设的几点思考.资源科学,2010,32(5):791-796.
[15]柳荻,胡振通,靳乐山.生态保护补偿的分析框架研究综述.生态学报,2018,38(2):380-392.
[16]靳乐山,胡振通.中国草原生态补偿机制研究.北京:经济科学出版社,2017:17-52.
[17]常丽霞.草地生态补偿:国家法与习惯法的暗合与补缺——甘南藏族牧区草地生态补偿政策实践的法人类学考察.西南民族大学学报:人文社科版,2013,34(5):44-48.
[18]冉冉.中国地方环境政治:政策与执行之间的距离.北京:中央编译出版社,2015:214-233.
[19]陈文烈,吴茜茜.基于草原生态补偿政策的国家与牧民视角变异逻辑探寻.青海民族大学学报:社会科学版,2014,40(1):99-107.
[20]竺乾威.从新公共管理到整体性治理.中国行政管理,2008,(10):52-58.
[21]臧雷振.治理类型的多样性演化与比较——求索国家治理逻辑.公共管理学报,2011,8(4):40-49.
[22]赵映诚.生态经济价值下政府生态管制政策手段的创新与完善.宏观经济研究,2009,(9):47-53.
[23] Engel S,Pagiola S,Wunder S. Designing payments for environmental services in theory and practice:an overview of the issues. Ecological Economics,2008,65(4):663-674.
[24]潘佳.政府在我国生态补偿主体关系中的角色及职能.西南政法大学学报,2016,18(4):68-78.
[25] Dietz T. Participatory evaluation of development interventions in a vulnerable African environment//Kasperson R E,Berberian M,eds. Integrating Science and Policy. Vulnerability and Resilience in Global Environmental Change. Washington,DC:Earthscan,2011.
[26] Dietz T. Participatory assessment of development in Africa//Pouw N R M,Baud I S A,eds. Local Governmence and Poverty in Developing Nations.New York,NY:Routledge,2012.
[27] Dietz T,Bymolt R,Bélemvire A,Van Der Geest K,De Groot D,Millar D,Obeng F,Pouw N,Rijneveld W,Zaal F. PADev guidebook:Participatory assessment of development. Leiden,the Netherlands:University of Amsterdam,2013.
[28] Dietz T,Bymolt R,Bélemvire A,Van Der Geest K,De Groot D,Millar D,Obeng F,Pouw N,Rijneveld W,Zaal F. PADev Guidebook:Participatory Assessment of Development,2013.
[29] Pouw N,Dietz T,Bélemvire A. Participatory assessment of development interventions:lessons learned from a new evaluation methodology in Ghana and Burkina Faso. American Journal of Evaluation,2016,38(1):47-59.
[30] Dietz A J,PADev Team. The PADev Story:PADev 2007-2013 End-of-Project Report. Leiden,the Netherlands:African Studies Centre,Leiden University,2013.
[31] Stern E,Stamme N,Mayne J,Forss K,Davies R,Befani B. Broadening the Range of Designs and Methods for Impact Evaluation. Report of A Study Commissioned By the Department for International Development(Df ID Working Paper 38). London,England:Df ID,2012.
[32]张静.案例分析的目标:从故事到知识.中国社会科学,2018,(8):126-142,207-207.
[33]宝力道.内蒙古牧民专业合作社发展现状及对策研究[D].北京:中央民族大学,2013.
[34]特日格勒萨仁.东乌珠穆沁旗牧民定居模式与演变——以哈日高壁嘎查为例.城市地理,2016,(22):244-245.
[35]裘丽,张剑.元评估在学术类社团评估中的探索性研究.学会,2016,(10):17-22.
[36]包秀霞,易津,廉勇,刘书润,吉木色,乌仁其木格.典型草原不同放牧方式植物群落多样性研究.华北农学报,2009,24(5):229-233.
[37]封志明,李鹏.承载力概念的源起与发展:基于资源环境视角的讨论.自然资源学报,2018,33(9):1475-1489.
[38]刘宇晨,张心灵.不同地区牧民对草原生态补偿方式的选择研究.生态经济,2018,(1):197-201.
[39]靳乐山,胡振通.草原生态补偿政策与牧民的可能选择.改革,2014,(11):100-107.
[40]李金亚,薛建良,尚旭东,李秉龙.草畜平衡补偿政策的受偿主体差异性探析——不同规模牧户草畜平衡差异的理论分析和实证检验.中国人口·资源与环境,2014,24(11):89-95.
[41]张倩.商品化悲剧:生态补偿与草场资源过度利用的逻辑.社会发展研究,2017,(4):181-195.
[42]魏琦,侯向阳.建立中国草原生态补偿长效机制的思考.中国农业科学,2015,48(18):3719-3726.
[43]海山.内蒙古牧区人地关系演变及调控问题研究.呼和浩特:内蒙古教育出版社,2013:283-287.
[44] Kini J. Inclusive water poverty index:A holistic approach for helping local water and sanitation services planning. Water Policy,2017,19(4):758-772.
[45] Kusters K,Buck L,Graaf M D,Minang P,Van Oosten C,Zagt R. Participatory planning,monitoring and evaluation of multi-stakeholder platforms in integrated landscape initiatives. Environmental Management,2017,(3):1-12.
[2]张倩.草原生态补助奖励机制的经济激励效果分析.甘肃社会科学,2016,(5):234-238.
[3]李静芳.我国地方公共政策评估现状与对策.行政论坛,2001,(6):13-15.
[4]詹国彬.我国公共政策评估的现状、困难及对策.江西行政学院学报,2002,4(2):8-11.
[5]王小鹏,赵成章,王晔立,张建强.基于不同生态功能区农牧户认知的草地生态补偿依据研究.中国草地学报,2012,34(3):1-5.
[6]巩芳,王芳,长青,刘鑫.内蒙古草原生态补偿意愿的实证研究.经济地理,2011,31(1):144-148.
[7]韦惠兰,宗鑫.草原生态补偿政策下政府与牧民之间的激励不相容问题——以甘肃玛曲县为例.农村经济,2014,(11):102-106.
[8]王曙光,王丹莉.减贫与生态保护:双重目标兼容及其长效机制——基于藏北草原生态补偿的实地考察.农村经济,2015,(5):3-8.
[9]祁晓慧,高博,王海春,周杰,乔光华.牧民视角下的草原生态保护补助奖励政策草畜平衡及禁牧补奖标准研究——以锡林郭勒盟为例.干旱区资源与环境,2016,30(5):30-35.
[10]宋向阳,郑淑华,图力古尔,萨仁格日勒,乌日乐格,刘巍,李俊海.生态补偿政策评价研究进展.草原与草业,2018,30(1):18-25.
[11]牛昉.退耕还林还草参与式评估研究.西安:西北大学出版社,2007.
[12]魏雯,徐柱,师尚礼,田青松,王慧萍,柳剑丽.基于参与式方法的农牧户生计现状评估——以内蒙古太仆寺旗为例.应用生态学报,2011,22(10):2686-2692.
[13]杨光梅,闵庆文,李文华,甄霖.我国生态补偿研究中的科学问题.生态学报,2007,27(10):4289-4300.
[14]李文华,刘某承.关于中国生态补偿机制建设的几点思考.资源科学,2010,32(5):791-796.
[15]柳荻,胡振通,靳乐山.生态保护补偿的分析框架研究综述.生态学报,2018,38(2):380-392.
[16]靳乐山,胡振通.中国草原生态补偿机制研究.北京:经济科学出版社,2017:17-52.
[17]常丽霞.草地生态补偿:国家法与习惯法的暗合与补缺——甘南藏族牧区草地生态补偿政策实践的法人类学考察.西南民族大学学报:人文社科版,2013,34(5):44-48.
[18]冉冉.中国地方环境政治:政策与执行之间的距离.北京:中央编译出版社,2015:214-233.
[19]陈文烈,吴茜茜.基于草原生态补偿政策的国家与牧民视角变异逻辑探寻.青海民族大学学报:社会科学版,2014,40(1):99-107.
[20]竺乾威.从新公共管理到整体性治理.中国行政管理,2008,(10):52-58.
[21]臧雷振.治理类型的多样性演化与比较——求索国家治理逻辑.公共管理学报,2011,8(4):40-49.
[22]赵映诚.生态经济价值下政府生态管制政策手段的创新与完善.宏观经济研究,2009,(9):47-53.
[23] Engel S,Pagiola S,Wunder S. Designing payments for environmental services in theory and practice:an overview of the issues. Ecological Economics,2008,65(4):663-674.
[24]潘佳.政府在我国生态补偿主体关系中的角色及职能.西南政法大学学报,2016,18(4):68-78.
[25] Dietz T. Participatory evaluation of development interventions in a vulnerable African environment//Kasperson R E,Berberian M,eds. Integrating Science and Policy. Vulnerability and Resilience in Global Environmental Change. Washington,DC:Earthscan,2011.
[26] Dietz T. Participatory assessment of development in Africa//Pouw N R M,Baud I S A,eds. Local Governmence and Poverty in Developing Nations.New York,NY:Routledge,2012.
[27] Dietz T,Bymolt R,Bélemvire A,Van Der Geest K,De Groot D,Millar D,Obeng F,Pouw N,Rijneveld W,Zaal F. PADev guidebook:Participatory assessment of development. Leiden,the Netherlands:University of Amsterdam,2013.
[28] Dietz T,Bymolt R,Bélemvire A,Van Der Geest K,De Groot D,Millar D,Obeng F,Pouw N,Rijneveld W,Zaal F. PADev Guidebook:Participatory Assessment of Development,2013.
[29] Pouw N,Dietz T,Bélemvire A. Participatory assessment of development interventions:lessons learned from a new evaluation methodology in Ghana and Burkina Faso. American Journal of Evaluation,2016,38(1):47-59.
[30] Dietz A J,PADev Team. The PADev Story:PADev 2007-2013 End-of-Project Report. Leiden,the Netherlands:African Studies Centre,Leiden University,2013.
[31] Stern E,Stamme N,Mayne J,Forss K,Davies R,Befani B. Broadening the Range of Designs and Methods for Impact Evaluation. Report of A Study Commissioned By the Department for International Development(Df ID Working Paper 38). London,England:Df ID,2012.
[32]张静.案例分析的目标:从故事到知识.中国社会科学,2018,(8):126-142,207-207.
[33]宝力道.内蒙古牧民专业合作社发展现状及对策研究[D].北京:中央民族大学,2013.
[34]特日格勒萨仁.东乌珠穆沁旗牧民定居模式与演变——以哈日高壁嘎查为例.城市地理,2016,(22):244-245.
[35]裘丽,张剑.元评估在学术类社团评估中的探索性研究.学会,2016,(10):17-22.
[36]包秀霞,易津,廉勇,刘书润,吉木色,乌仁其木格.典型草原不同放牧方式植物群落多样性研究.华北农学报,2009,24(5):229-233.
[37]封志明,李鹏.承载力概念的源起与发展:基于资源环境视角的讨论.自然资源学报,2018,33(9):1475-1489.
[38]刘宇晨,张心灵.不同地区牧民对草原生态补偿方式的选择研究.生态经济,2018,(1):197-201.
[39]靳乐山,胡振通.草原生态补偿政策与牧民的可能选择.改革,2014,(11):100-107.
[40]李金亚,薛建良,尚旭东,李秉龙.草畜平衡补偿政策的受偿主体差异性探析——不同规模牧户草畜平衡差异的理论分析和实证检验.中国人口·资源与环境,2014,24(11):89-95.
[41]张倩.商品化悲剧:生态补偿与草场资源过度利用的逻辑.社会发展研究,2017,(4):181-195.
[42]魏琦,侯向阳.建立中国草原生态补偿长效机制的思考.中国农业科学,2015,48(18):3719-3726.
[43]海山.内蒙古牧区人地关系演变及调控问题研究.呼和浩特:内蒙古教育出版社,2013:283-287.
[44] Kini J. Inclusive water poverty index:A holistic approach for helping local water and sanitation services planning. Water Policy,2017,19(4):758-772.
[45] Kusters K,Buck L,Graaf M D,Minang P,Van Oosten C,Zagt R. Participatory planning,monitoring and evaluation of multi-stakeholder platforms in integrated landscape initiatives. Environmental Management,2017,(3):1-12.