节能减排政策制定部门的协同有效性——基于1195条节能减排政策的研究
|
摘要
依据收集的1978年至2013年间颁布的1195条节能减排政策,采用统计分析和合著网络分析方法分析了各节能减排政策制定核心部门与其他部门的协同情况.在对各部门制定节能减排政策过程中的协同程度进行量化的基础上,通过构建模型深层次研究了发改委、财政部及环保部等政策制定核心部门两两协同对节能绩效的影响和对减排绩效的影响,探究了环保部与其他节能减排政策制定部门协同的效果.研究表明:改革开放以来,节能减排政策制定部门之间的协同逐渐得到了政府的重视,我国节能减排政策的部门协同现象呈现波动式上升趋势;在节能减排政策制定的协同过程中,财政部、发改委和环保部扮演着环境治理的"铁三角"角色,环保部作为节能减排工作的主要承担部门,与其他部门协同的程度小于财政部和发改委等掌握权力和资源的部门,且环保部与其他两部门的协同对节能减排绩效的影响尚不显著;节能和减排两大技术领域之间并不存在直接对等的关系,同两部门间的协同对节能的影响和对减排的影响存在显著性不同,相关部门在制定节能减排政策时有待进一步认识二者的差异以提高节能减排的效率.本文还从深化部门合作、强化相关部门作用及提高政策的针对性等方面提出了对策建议.
Based on the 1195 energy conservation and emission reduction policies announced from 1978 to 2013, we analyses the situation of sectors' coordination on energy conservation and emission reduction policies' making, as well as coordination between core sector which formulates energy conservation and emission reduction policies and other sectors. On the basis of quantization of policy coordination degree,we developed a series of models to study the effectiveness of policies announced by two of the three core departments consisted of the Development and Reform Commission, Ministry of Finance and the Ministry of Environmental Protection, and do further exploration of effectiveness of coordination between the Department of Environmental Protection and other policymakers. The results show that: after the reform and opening-up, Chinese government puts more emphasis on the sectors' coordination in the process of energy conservation and emission reduction policies' making, phenomenon of China's energy conservation and emission reduction policy-making departments coordination presents a fluctuating upward trend; as the main undertaker of energy conservation and emission reduction, the environmental protection department's synergy degree with other policymaker is less than coordination degree between other sectors in power and resources, and the impact of coordination of environmental department and other sectors is not significant; there is no direct relationship between energy-saving and emission-reduction, in order to improve the efficiency of energy-saving and emission-reduction, the relevant departments must pending further understanding of the difference between these two parts. This article also puts forward some suggestions from deepen sectors' cooperation and strengthen the function of the relevant departments.
Based on the 1195 energy conservation and emission reduction policies announced from 1978 to 2013, we analyses the situation of sectors' coordination on energy conservation and emission reduction policies' making, as well as coordination between core sector which formulates energy conservation and emission reduction policies and other sectors. On the basis of quantization of policy coordination degree,we developed a series of models to study the effectiveness of policies announced by two of the three core departments consisted of the Development and Reform Commission, Ministry of Finance and the Ministry of Environmental Protection, and do further exploration of effectiveness of coordination between the Department of Environmental Protection and other policymakers. The results show that: after the reform and opening-up, Chinese government puts more emphasis on the sectors' coordination in the process of energy conservation and emission reduction policies' making, phenomenon of China's energy conservation and emission reduction policy-making departments coordination presents a fluctuating upward trend; as the main undertaker of energy conservation and emission reduction, the environmental protection department's synergy degree with other policymaker is less than coordination degree between other sectors in power and resources, and the impact of coordination of environmental department and other sectors is not significant; there is no direct relationship between energy-saving and emission-reduction, in order to improve the efficiency of energy-saving and emission-reduction, the relevant departments must pending further understanding of the difference between these two parts. This article also puts forward some suggestions from deepen sectors' cooperation and strengthen the function of the relevant departments.
引文
[1]Chen S Y.The evaluation indicator of ecological development transition in China's regional economy[J].Ecological Indicators,2015,51:42-52.
[2]Christoff P.Cold Climate in Copenhagen:China and the United States at COP15[J].Environmental Politics,2010,19:637-656.
[3]Recalde M.Energy policy and energy market performance:The Argentinean case[J].Energy Policy,2011,39(6):3860-3868.
[4]孙迎春.公共部门协作治理改革的新趋势——以美国国家海洋政策协同框架为例[J].中国行政管理,2011(11):96-99.Sun Y C.A new trend of public sector reform:collaborative governance—Taking the US national ocean policy as an example[J].Chinese Public Administration,2011(11):96-99.
[5]孙迎春.澳大利亚整体政府改革与跨部门协同机制[J].中国行政管理,2013(11):94-98.Sun Y C.A study of Australian Whole-of-Government reform and its Cross-Agency collaboration mechanism[J].Chinese Public Administration,2013(11):94-98.
[6]王琳,肖序,许家林.“政府-企业”节能减排互动机制研究[J].中国人口.资源与环境,2011,21(6):102-109.Wang L,Xiao X,Xu J L.On interaction mechanism of energy saving and emission reduction between government and enterprises[J].China Population,Resources and Environment,2011,21(6):102-109.
[7]刘笑萍,张永正,长青.基于ECK模型的中国实现减排目标分析与减排对策[J].管理世界,2009(4):75-82.Liu X P,Zhang Y Z,Chang Q.An analysis,based on the model of environmental Kuznet curve of China's hitting the target of the reduction of pollutant discharge,and related policies[J].Management World,2009(4):75-82.
[8]Lo K.A critical review of China's rapidly developing renewable energy and energy efficiency policies[J].Renewable and Sustainable Energy Reviews,2014,29:508-516.
[9]Chen A P,Groenewold N.Emission reduction policy:A regional economic analysis for China[J].Economic Modelling,2015,51:136-152.
[10]Zhang Z G,Jin X C,Yang Q X,et al.An empirical study on the institutional factors of energy conservation and emissions reduction:Evidence from listed companies in China[J].Energy Policy,2013,57:36-42.
[11]许士春,何正霞,龙如银.环境政策工具比较:基于企业减排的视角[J].系统工程理论与实践,2012,32(11):2351-2362.Xu S C,He Z X,Long R Y.Comparative research on environmental policy instruments:Enterprise emission abatement perspective[J].Systems Engineering—Theory&Practice,2012,32(11):2351-2362.
[12]哈肯.高等协同学[M].郭治安,译.北京:科学出版社,1989.Haken H.Advanced synergetics[M].Beijing:Science Press,1989.
[13]Mienkowska-Norkiene R.Efficiency of coordination of European policies at domestic level-challenging polish coordination system[J].Procedia—Social and Behavioral Sciences,2014,143:867-871.
[14]范斐,孙才志,王雪妮.社会,经济与资源环境复合系统协同进化模型的构建及应用——以大连市为例[J].系统工程理论与实践,2013,33(2):413-419.Fan F,Sun C Z,Wang X N.Social,economic and resource environment composite system of co-evolutionCase of Dalian[J].Systems Engineering—Theory&Practice,2013,33(2):413-419.
[15]鄞益奋.网络治理:公共管理的新框架[J].公共管理学报,2007,4(1):89-96.Yin Y F.Governance:A new framework of public administration[J].Journal of Public Management,2007,4(1):89-96.
[16]彭纪生,仲为国,孙文祥.政策测量、政策协同演变与经济绩效:基于创新政策的实证研究[J].管理世界,2008(9):25-36.Peng J S,Zhong W G,Sun W X.Measurement of policy,coordination of policy and economic performance:An empirical study on innovation policy[J].Management World,2008(9):25-36.
[17]Carley S.Decarbonization of the US electricity sector:Are state energy policy portfolios the solution?[J].Journal of Public Economics,2008,38(3):1004-1023.
[18]Fischer C,Newell R G.Environmental and technology policies for climate mitigation[J].Journal of Environmental Economics and Management,2008,55(2):142-162.
[19]张国兴,高秀林,汪应洛,等.政策协同:节能减排政策研究的新视角[J].系统工程理论与实践,2014,34(3):545-559.Zhang G X,Gao X L,Wang Y L,et al.Policy synergy:A new perspective of the research on energy conservation and emission reduction policies in China[J].Systems Engineering—Theory&Practice,2014,34(3):545-559.
[20]薛俭,谢婉林,李常敏.京津冀大气污染治理省际合作博弈模型[J].系统工程理论与实践,2014,34(3):810-816.Xue J,Xie W L,Li C M.Inter-provincial cooperative game model of Beijing,Tianjin and Hebei province air pollution control[J].Systems Engineering—Theory&Practice,2014,34(3):810-816.
[21]Matei A,Dogaru T C.Coordination of public policies in Romania:An empirical analysis[J].Procedia—Social and Behavioral Sciences,2013,81(5):65-71.
[22]Liao Z J.The evolution of wind energy policies in China(1995-2014):An analysis based on policy instruments[J].Renewable and Sustainable Energy Reviews,2016,56:464-472.
[23]张雷,李艳梅,黄园淅,等.中国结构节能减排的潜力分析[J]·中国软科学,2011(2):42-51.Zhang L,Li Y M,Huang Y X,et al.Analysis on character and potential of energy saving and carbon reducing by structure evolution in China[J].China Soft Science,2011(2):42-51.
[24]张国兴,高秀林,汪应洛,等.中国节能减排政策的测量、协同与演变——基于1978-2013年政策数据的研究[J].中国人口.资源与环境,2014,24(12):62-73.Zhang G X,Gao X L,Wang Y L,et al.Measurement,coordination and evolution of energy conservation andemission reduction policies in China:Based on the research of the policy data from 1978 to 2013[M].China Population,Resources and Environment,2014,24(12):62-73.
[25]黄萃,任裂,李江,等.责任与利益:基于政策文献量化分析的中国科技创新政策府际合作关系演进研究[J].管理世界,2015(12):68-81.Huang C,Ren T,Li J,et al.Responsibilities and interests:Study on intergovernmental cooperation evolution of Chinese science and technology policy based on quantitative analysis of policy documents[J].Management World,2015(12):68-81.
[26]Canzoneri M B,Cumby R E,Diba B T.The need for international policy system in China and its synergetic operation mechanism[J].Journal of International Economics,2005,66(2):363-384.
[27]陈锡康,杨翠红.投入产出技术[M].北京:科学出版社,2011.Chen X K,Yang C H.Input-output technology[M].Beijing:Science Press,2011.
[28]Peng L H,Zeng X L,Wang Y J,et al.Analysis of energy efficiency and carbon dioxide reduction in the Chinese pulp and paper industry[J].Energy Policy,2015(80):65-75.
[29]Jia L J.Empirical analysis of carbon emissions influential factors based on LMDI decomposition and state space model[J].International Journal of Applied Mathematics and Statistics,2013,45(15):240-246.
[30]王文举,向其凤.中国产业结构调整及其节能减排潜力评估[J].中国工业经济,2014(1):44-56.Wang W J,Xiang Q F.Adjustment of industrial structure and the potential assessment of energy saving and carbon reduction[J].China Industrial Economics,2014(1):44-56.
1.本文绘制了各个阶段的部门关系网络图,因篇幅所限不在文中一一列示,如有需要可向作者发送邮件.
2.对各部门的命名采取各部门名称的首字母表示,如发改委用“F”表示.
3.注:度量“measure”的首字母M+协同“coordination”的首字母C+参与协同的两部门的英文命名,如财政部与发改委协同程度的英文命名为“MCCF”,C为财政部的英文简写,F为发改委的英文简写;在某一具体目标上的部门协同度命名规则为:度量“measure”的首字母M+目标objective的首字母O+参与协同的两部门的英文命名,如财政部与发改委在具体目标上的协同程度的英文命名为“MOCF”,C为财政部的英文简写,F为发改委的英文简写,
4.本文定义的节能减排政策目标有防治污染、树立节能减排理念、推动产业升级、提升节能减排执行效果、提高能源利用效率、优化能源消费结构和推动节能减排技术改造,参见文献[24].
[2]Christoff P.Cold Climate in Copenhagen:China and the United States at COP15[J].Environmental Politics,2010,19:637-656.
[3]Recalde M.Energy policy and energy market performance:The Argentinean case[J].Energy Policy,2011,39(6):3860-3868.
[4]孙迎春.公共部门协作治理改革的新趋势——以美国国家海洋政策协同框架为例[J].中国行政管理,2011(11):96-99.Sun Y C.A new trend of public sector reform:collaborative governance—Taking the US national ocean policy as an example[J].Chinese Public Administration,2011(11):96-99.
[5]孙迎春.澳大利亚整体政府改革与跨部门协同机制[J].中国行政管理,2013(11):94-98.Sun Y C.A study of Australian Whole-of-Government reform and its Cross-Agency collaboration mechanism[J].Chinese Public Administration,2013(11):94-98.
[6]王琳,肖序,许家林.“政府-企业”节能减排互动机制研究[J].中国人口.资源与环境,2011,21(6):102-109.Wang L,Xiao X,Xu J L.On interaction mechanism of energy saving and emission reduction between government and enterprises[J].China Population,Resources and Environment,2011,21(6):102-109.
[7]刘笑萍,张永正,长青.基于ECK模型的中国实现减排目标分析与减排对策[J].管理世界,2009(4):75-82.Liu X P,Zhang Y Z,Chang Q.An analysis,based on the model of environmental Kuznet curve of China's hitting the target of the reduction of pollutant discharge,and related policies[J].Management World,2009(4):75-82.
[8]Lo K.A critical review of China's rapidly developing renewable energy and energy efficiency policies[J].Renewable and Sustainable Energy Reviews,2014,29:508-516.
[9]Chen A P,Groenewold N.Emission reduction policy:A regional economic analysis for China[J].Economic Modelling,2015,51:136-152.
[10]Zhang Z G,Jin X C,Yang Q X,et al.An empirical study on the institutional factors of energy conservation and emissions reduction:Evidence from listed companies in China[J].Energy Policy,2013,57:36-42.
[11]许士春,何正霞,龙如银.环境政策工具比较:基于企业减排的视角[J].系统工程理论与实践,2012,32(11):2351-2362.Xu S C,He Z X,Long R Y.Comparative research on environmental policy instruments:Enterprise emission abatement perspective[J].Systems Engineering—Theory&Practice,2012,32(11):2351-2362.
[12]哈肯.高等协同学[M].郭治安,译.北京:科学出版社,1989.Haken H.Advanced synergetics[M].Beijing:Science Press,1989.
[13]Mienkowska-Norkiene R.Efficiency of coordination of European policies at domestic level-challenging polish coordination system[J].Procedia—Social and Behavioral Sciences,2014,143:867-871.
[14]范斐,孙才志,王雪妮.社会,经济与资源环境复合系统协同进化模型的构建及应用——以大连市为例[J].系统工程理论与实践,2013,33(2):413-419.Fan F,Sun C Z,Wang X N.Social,economic and resource environment composite system of co-evolutionCase of Dalian[J].Systems Engineering—Theory&Practice,2013,33(2):413-419.
[15]鄞益奋.网络治理:公共管理的新框架[J].公共管理学报,2007,4(1):89-96.Yin Y F.Governance:A new framework of public administration[J].Journal of Public Management,2007,4(1):89-96.
[16]彭纪生,仲为国,孙文祥.政策测量、政策协同演变与经济绩效:基于创新政策的实证研究[J].管理世界,2008(9):25-36.Peng J S,Zhong W G,Sun W X.Measurement of policy,coordination of policy and economic performance:An empirical study on innovation policy[J].Management World,2008(9):25-36.
[17]Carley S.Decarbonization of the US electricity sector:Are state energy policy portfolios the solution?[J].Journal of Public Economics,2008,38(3):1004-1023.
[18]Fischer C,Newell R G.Environmental and technology policies for climate mitigation[J].Journal of Environmental Economics and Management,2008,55(2):142-162.
[19]张国兴,高秀林,汪应洛,等.政策协同:节能减排政策研究的新视角[J].系统工程理论与实践,2014,34(3):545-559.Zhang G X,Gao X L,Wang Y L,et al.Policy synergy:A new perspective of the research on energy conservation and emission reduction policies in China[J].Systems Engineering—Theory&Practice,2014,34(3):545-559.
[20]薛俭,谢婉林,李常敏.京津冀大气污染治理省际合作博弈模型[J].系统工程理论与实践,2014,34(3):810-816.Xue J,Xie W L,Li C M.Inter-provincial cooperative game model of Beijing,Tianjin and Hebei province air pollution control[J].Systems Engineering—Theory&Practice,2014,34(3):810-816.
[21]Matei A,Dogaru T C.Coordination of public policies in Romania:An empirical analysis[J].Procedia—Social and Behavioral Sciences,2013,81(5):65-71.
[22]Liao Z J.The evolution of wind energy policies in China(1995-2014):An analysis based on policy instruments[J].Renewable and Sustainable Energy Reviews,2016,56:464-472.
[23]张雷,李艳梅,黄园淅,等.中国结构节能减排的潜力分析[J]·中国软科学,2011(2):42-51.Zhang L,Li Y M,Huang Y X,et al.Analysis on character and potential of energy saving and carbon reducing by structure evolution in China[J].China Soft Science,2011(2):42-51.
[24]张国兴,高秀林,汪应洛,等.中国节能减排政策的测量、协同与演变——基于1978-2013年政策数据的研究[J].中国人口.资源与环境,2014,24(12):62-73.Zhang G X,Gao X L,Wang Y L,et al.Measurement,coordination and evolution of energy conservation andemission reduction policies in China:Based on the research of the policy data from 1978 to 2013[M].China Population,Resources and Environment,2014,24(12):62-73.
[25]黄萃,任裂,李江,等.责任与利益:基于政策文献量化分析的中国科技创新政策府际合作关系演进研究[J].管理世界,2015(12):68-81.Huang C,Ren T,Li J,et al.Responsibilities and interests:Study on intergovernmental cooperation evolution of Chinese science and technology policy based on quantitative analysis of policy documents[J].Management World,2015(12):68-81.
[26]Canzoneri M B,Cumby R E,Diba B T.The need for international policy system in China and its synergetic operation mechanism[J].Journal of International Economics,2005,66(2):363-384.
[27]陈锡康,杨翠红.投入产出技术[M].北京:科学出版社,2011.Chen X K,Yang C H.Input-output technology[M].Beijing:Science Press,2011.
[28]Peng L H,Zeng X L,Wang Y J,et al.Analysis of energy efficiency and carbon dioxide reduction in the Chinese pulp and paper industry[J].Energy Policy,2015(80):65-75.
[29]Jia L J.Empirical analysis of carbon emissions influential factors based on LMDI decomposition and state space model[J].International Journal of Applied Mathematics and Statistics,2013,45(15):240-246.
[30]王文举,向其凤.中国产业结构调整及其节能减排潜力评估[J].中国工业经济,2014(1):44-56.Wang W J,Xiang Q F.Adjustment of industrial structure and the potential assessment of energy saving and carbon reduction[J].China Industrial Economics,2014(1):44-56.
1.本文绘制了各个阶段的部门关系网络图,因篇幅所限不在文中一一列示,如有需要可向作者发送邮件.
2.对各部门的命名采取各部门名称的首字母表示,如发改委用“F”表示.
3.注:度量“measure”的首字母M+协同“coordination”的首字母C+参与协同的两部门的英文命名,如财政部与发改委协同程度的英文命名为“MCCF”,C为财政部的英文简写,F为发改委的英文简写;在某一具体目标上的部门协同度命名规则为:度量“measure”的首字母M+目标objective的首字母O+参与协同的两部门的英文命名,如财政部与发改委在具体目标上的协同程度的英文命名为“MOCF”,C为财政部的英文简写,F为发改委的英文简写,
4.本文定义的节能减排政策目标有防治污染、树立节能减排理念、推动产业升级、提升节能减排执行效果、提高能源利用效率、优化能源消费结构和推动节能减排技术改造,参见文献[24].