当代中国治理的海洋管理多重结构和功能联动机制分析
作者简介:崔旺来,浙江海洋大学经济与管理学院教授(浙江舟山 316022);毛宣凯,浙江海洋大学经济与管理学院硕士研究生(浙江舟山 316022)。
基金项目:
本文为国家社会科学基金项目“中国海洋管理机构职能协同与治理现代化研究”(20BZZ063)、国家社会科学基金重大项目“我国海洋战略科技力量体系化建设研究”(22&ZD152)的阶段性成果
摘要: 中国改革开放以来海洋经济发展取得巨大绩效,主因在于中国特色海洋管理结构的有效运行。2018年中国机构改革不再保留成立55年的国家海洋局,中国海洋管理组织结构与体制框架进行了整体性重构,中央层面海洋管理职能配置到诸多部门,地方海洋管理形成多种模式。陆海统筹在当代中国海洋治理中扮演的角色更加突出,但仍面临涉海管理机构设置不统一、职能配置不大到位、机制运行不大顺畅的问题。在治权构成方面,现行海洋管理结构在一定程度上降低了中国参与全球海洋治理的效能,弱化了对海洋经济发展重视程度,削弱了基层海洋管理队伍,地方政府多头管理现象仍未完全解决。在功能实现机制方面,涉海管理机构横向、纵向及斜向府际关系的权力配置共同构成了中国现行海洋治理组织的总体架构,但涉海协调机构的缺位或虚置导致央地关系、地地关系和部门关系的海洋管理协同效能发挥不充分。在治理实践中,敏捷治理、整体智治、全球视野成为当代中国海洋管理的发展要求及其调适路径。
An Analysis of the Multiple Structure and Functional Linkage Mechanism of Ocean Management in Contemporary Chinese Governance
Abstract: Since China's reform and opening up, great achievements have been made in the development of marine economy, which can be attributed to the effective operation of marine management structure with Chinese characteristics.The State Oceanic Administration, which has been established for 55 years, is no longer retained in China's institutional reform in 2018.The organizational structure and institutional framework of China's ocean management have been reconstructed as a whole.The functions of ocean management at the central level are allocated to many departments, and local ocean management has formed a variety of models.The role of land-sea coordination in contemporary China's ocean governance is more prominent, but it still faces the problems of inconsistent establishment of sea-related management institutions, inadequate functional allocation, and poor operation of the mechanism.In terms of the composition of governance power, the current ocean management structure has reduced the effectiveness of China's participation in global ocean governance, weakened the emphasis on ocean economic development, and weakened the grass-roots ocean management team, and the phenomenon of local government multi-management has not yet been fully resolved.In terms of function realization mechanism, the power allocation of horizontal, vertical and oblique intergovernmental relations of sea-related management institutions together constitute the overall structure of China's current ocean governance organization.However, the absence or non-existence of sea-related coordination institutions leads to the insufficient synergy of ocean management between central and local relations, land and land relations and departmental relations.In the practice of governance, agile governance, overall intelligent governance and global vision have become the development requirements and debugging paths of contemporary China's ocean management.Some large ocean provinces, strong ocean cities and large ocean cities in China have successively established independent ocean comprehensive management institutions since this year, marking that coastal areas have reshaped the ocean governance system according to local conditions and made efforts to develop the ocean economy, which has also become the proper meaning of the construction of a maritime power.