我国水利事权与支出责任划分中存在的问题及原因探析

为健全完善我国水利事权与支出责任相匹配的体制机制,提高水利资金使用效益,促进水利事业更好发展,在对湖南省内外多处水库、水闸、堤防、灌渠等水利设施展开实地调研的基础上,剖析我国水利事权与支出责任划分在具体实践中存在的突出问题,并利用多中心治理理论、财政联邦主义理论、官僚主义理论阐述其产生原因。研究发现,社会、个人在水利治理中过度依赖政府,上下级政府间事权与支出责任划分不合理、跨界纠纷难以解决,政府部门间水利事权与支出责任划分交叉重叠、九龙治水,专项资金规模庞大、财政碎片化现象严重。而社会和个人自主性不强、自我组织能力较弱、参与水利治理机制不完善,各级政府行政性分权特征明显、职责同构、博弈地位不对等,部门间职责边界模糊、部门利益固化是其主要成因。基于此,提出水利事权与支出责任划分改革的一系列政策措施,以期为进一步完善水利事权与支出责任划分,形成以政府为主体的各方利益均衡治理模式提供参考借鉴。

Problems and causes of division of water conservancy administrative powers and expenditure responsibilities in China

In order to strengthening the system of water conservancy administrative powers in relation to expenditure responsibilities in China, to improve the efficiency of water conservancy funds and to promote the development of water conservancy, the existing problems in the current division of water conservancy administrative powers and expenditure responsibilities are discussed through the field investigations of many reservoirs, water locks, dykes and irrigation ditches mainly in Hunan Province. Then the causes are analyzed by using the polycentric governance theory, fiscal federalism theory and bureaucracy theory. The results show that the society and individuals excessively depend on the government in the regulation of water conservancy. The division of water conservancy administrative powers between higher and lower levels is unreasonable. The inter-boundary conflicts are hard to be solved. The division of water conservancy administrative powers among different government departments is overlapped, and there is coexistence of multiple departments in regulating water conservancy. The scale of special funds is large, and the fiscal fragmentation is serious. The main causes are as follows: the social and individual autonomy is not strong, and their self organizing ability is weak. The participation system in water conservancy is not perfect. The division of water conservancy administrative powers between higher and lower levels exhibits obvious administrative powers, same responsibilities and unfavorable gaming positions. The responsibility boundaries among different governmental departments are vague. The sector interests are fixed. Based on the above mentioned, a series of policy measures for reform of the division of the water conservancy administrative powers and expenditure responsibilities are put forward so as to form the equilibrium administrative mode for stakeholders with the government being the subject.