【作者】 李强；

【导师】 齐伟；

【作者基本信息】 山东农业大学 ， 公共管理（专业学位）， 2021， 硕士

【摘要】 河长制、湖长制、田长制、林长制(以下简称“四长制”)是对不同自然资源要素实施管理而建立的制度。在“四长制”发挥作用过程中,国家启动实施自然资源管理体制改革,整合组建自然资源部门,以对山水林田湖草等各自然资源要素进行整体保护、系统修复和综合治理。自然资源管理体制调整后,“四长制”进行了机制优化、职责强化,持续推进“有名”到“有实”转变,该类制度从地方探索、试点到全面推广,在实施自然资源管理、推进治理体系和治理能力现代化方面发挥了重要作用。为研究“四长制”对实施自然资源管理的影响与绩效,以期通过研究提出推动制度优势转化为治理效能的建议,本文在阐述“四长制”、自然资源管理体制概况的基础上,分析“四长制”基础理论,结合机构编制效能评估,综合运用实地调研、政策研究和问卷调查等方法,研究“四长制”对自然资源管理影响机制,并对其绩效进行诊断分析,提出完善体制机制的相关建议。主要研究内容和成果如下:(1)分析“四长制”产生的理论基础及与部门的关系。阐述“四长制”产生发展历程及组织体系,分析得出“四长制”是以“责任制”为核心的自然资源管理制度,其理论基础就是“公共责任制”,是政府履行自然资源管理公共职能的公共责任体系。基于多中心理论、整体性理论、层级制理论与“四长制”制度进行对比分析,运用比较研究法,研究国内自然资源管理部门组建现状和国外自然资源管理体制,分析得出“四长制”与自然资源管理部门之间“要素管理”与“综合管理”、“职能交叉”与“作用补充”、“内部分工”与“外部协同”的关系。(2)研究“四长制”对自然资源管理的影响作用机制。以自然资源管理成效反映制度管理成效为研究导向,选取济宁市为例,通过对统计数据、部门报告的相关数据,及实地调研、问卷调查获取的信息进行综合分析,从水(河湖)资源管理、耕地资源管理、林业资源管理三方面研究“四长制”的管理成效,找出“四长制”对自然资源管理的影响作用因子,即:用途管制、部门协同、生态治理、分层控制。(3)通过绩效诊断提出完善自然资源管理体系建议。对“四长制”实施自然资源管理绩效诊断,分析得出“四长制”制度在五个方面的绩效驱动因素,运用机构编制效能评估、问卷访谈和政策研究等方式方法,对“四长制”实施自然资源管理进行绩效诊断,找出“四长制”在实施自然资源管理中面临的“四长”责任虚化、基层体制不完善、制度运行与法制建设不同步、管理职能不充分、科层治理与多元共治间存在鸿沟等问题。基于“四长制”制度机制,提出完善自然资源管理体系的建议,即探索推进自然资源的“整体性”治理、依托土地载体推进“四长制”有效整合、加快自然资源和生态环境监管的深度融合、加强自然资源资产管理与资源监管的衔接、引导社会广泛参与构建多元共治格局。综上分析,“四长制”与自然资源管理体制机制、相关法规政策共同构成了自然资源治理体系,其对自然资源管理具有积极影响,能够有效调动多方资源和力量,强化各级各部门的协同配合,推进自然资源高效治理。同时,应坚持问题导向,着眼自然资源系统治理、依法治理、综合治理、源头治理,持续完善“四长制”制度体系、加强制度设计,将“山水林田湖草”等资源统筹管理,形成自然资源治理的整体合力,推进自然资源治理体系和治理能力现代化。更多还原

【Abstract】 The river chief system,lake chief system,field chief system and forest chief system(hereinafter referred to as the "four chief system")are systems established for the Implement management of different natural resource elements.In the process of "four-chief system" work,our country carried out the reform of the natural resource management system and established natural resource departments,so as to realize the overall protection,systematic restoration and comprehensive treatment of natural resource elements such as mountains,rivers,forests,farmland,lakes and grasses.After the adjustment of the natural resource management system,the "four-chief system" has optimized the mechanism,strengthened the responsibilities,and realized the transformation from virtual to real.Such systems have played a positive role in the implementation of natural resource management and the modernization of the governance system and capacity,from local exploration,pilot to comprehensive promotion.In order to study the impact and performance of the "four-chief system" on natural resource management,and to better promote the transformation of institutional advantages into governance efficiency,this paper based on the introduction of the "four-chief system" and the natural resource management system at home and abroad,comprehensively uses the methods of field research,policy research and questionnaire survey to studies and analyzes the influence mechanism of "four-chief system" on natural resource management,and evaluates its performance,find out the function mechanism and put forward relevant suggestions to improve the system mechanism.The main contents and achievements of the study are as follows:(1)Analyzes the theoretical basis of "four-chief system" and its relationship with departments.This paper expounds the development process and organization system of the"four-chief system",and analyzes that the "four-chief system" is a natural resource management system with the "responsibility system" as the core.Its theoretical basis is"public responsibility system",which is the public responsibility system for the government to perform the public functions of natural resources management.Based on the analysis above polycentric theory,the holistic theory,the hierarchical system theory and the "four-chief system"system,by using the method of comparative study,this paper studies the current situation of the establishment of natural resources management departments in China,and analyzes the relationship between"four chief system"and natural resources management departments,such as"element management"and"comprehensive management","cross function"and"role supplement","internal division of labor"and"external coordination".(2)To study the influence mechanism of "four chief system" on natural resource management.Taking the effect of natural resource management reflecting the effect of system management as the research orientation,taking Jining City as an example,through the comprehensive analysis of statistical data,relevant data of department reports,and information obtained from field survey and questionnaire survey,this paper studies the management effect of "four-chief system" from three aspects of water resource management,cultivated land resource management and forestry resource management,and finds out influence factors of the "four-chief system" on natural resource management,as follows: Use control,department cooperation,ecological management and hierarchical control.(3)Based on the "four chief system" puts forward suggestions to improve the natural resources management system.This paper analyzes the five performance driving factors of the "four chief system" in the implementation of natural resource management,and uses the methods of institutional effectiveness evaluation,questionnaire interview and policy research to diagnose the performance of the "four chief system" in the implementation of natural resource management,It is found out that the "four chief system" in the implementation of natural resource management faces some problems,such as the virtual responsibility of the "four chief",the imperfection of the grass-roots system,the asynchrony between the system operation and the construction of the legal system,the inadequacy of the management function,and the gap between the bureaucratic governance and the pluralistic co governance.based on the "four chief system" system mechanism,this paper puts forward some suggestions to improve the natural resource management system,that is,to explore and promote the "holistic" governance of natural resources,to promote the effective integration of the "four long system" relying on the land carrier,and to speed up the development of natural resources and ecological environment We should strengthen the connection between natural resource asset management and resource supervision,and guide the society to participate in building a multi governance pattern.In summary,the "four chief system",the natural resources management system and relevant laws and regulations constitute the natural resources governance system.It has a positive impact on natural resource management,can effectively mobilize multiple resources and forces,strengthen the coordination of all levels of departments,and push forward the effective governance of natural resources.At the same time,we should adhere to the problem orientation,focus on the natural resources system governance,legal governance,comprehensive governance,source governance,continuously improve the"four chief system"system system,strengthen the system design,and comprehensively manage the resources such as landscape,forest,land,lake and grass,form the integrated force of natural resource management,and promote the modernization of natural resource management system and governance capacity.更多还原