對生態文明背景下流域/跨區域水環境進行管理,不能僅從水環境問題出發,而應從中國水問題的整體復雜性著眼。從涉水空間開發保護,水資源節約和補償,水環境、水生態治理和保護市場,績效評價考核和責任追究四個方面對相關政策進行歸類,梳理出包含24項政策的政策體系框架,闡述了各類政策的目標定位和相互關系。對有關政策進行的評估,主要是政策執行評估,重點關注相關政策制定和執行階段出現的問題。采用指標評估法,遴選20項評估指標,定性與定量相結合,對流域/跨區域層面的水環境管理政策進行評估。評估結果顯示:黨的"十八大"以來,特別是生態文明體制改革"四梁八柱"構建之后,相關政策性文件制定工作的完成步入高峰期;分別有75%和41%的政策設置了階段性目標和約束性目標;近54%的政策由多部門組織制定,環保、水利兩部門牽頭制定的政策數量最多;有約66%的政策得到中央深改組審議,顯示黨中央對于流域/跨區域水環境問題的高度重視;有54.17%的政策需要開展試點工作,探索可復制可推廣經驗;對于考核牽頭單位、考核內容和考核作用等三項指標,均有50%以上政策達標;考核時間和評分方式的達標率往往不足25%。所有政策的改革工作均需要調整現行法律法規;約71%的政策需要調整現行管理體制;近55%的政策,目前仍處于試驗階段。通過評估發現的問題主要包括:政策制定存在盲目性,考核機制失之于寬;改革任務交叉重疊,存在部門利益導向;試點地區和政策數量空間差異顯著,試點選擇科學性不足;生態文明立法的完整性和協調性不足等。在此基礎上,提出了有針對性的建議,包括:進一步強化改革目標的引領作用,對改革任務進行調整、優化,優化試點地區和試點政策布局,調整與改革工作不相稱的法律法規和管理體制,進一步健全改革任務的考核機制。

In the context of China’s ecological civilization reform,the watershed/cross-regional management of water environments should address not only local problems,but also account for the complex issues surrounding water resources on a national scale. This study presents an analysis of watershed/cross-regional water management policies in China. We first categorize policies based on the following subjects: development and protection of water-related spaces,conservation and compensation of water resources,water environment preservation market,and performance appraisal and accountability. A 24-policy framework is established to describe their goals and mutual relationships. We then choose 20 qualitative and quantitative indicators to review said policies,with a focus on issues in their formulation and implementation. The results indicate: a high number of policy documents are completed since the 18 th National Congress of the Communist Party of China,and President Xi’s statement on establishing the frame for ecological civilization-based reform; 75%and 41% of policies have been developed respectively with short-term and long-term targets; near 54% of policies are developed through the collaboration of multiple authorities,and the ministries of Environmental Protection and Water Resources headed the development of the largest number of policies; about 66% of policies are reviewed and discussed by the Central Leading Group for Comprehensively Deepening Reforms,which shows the importance the central party leadership gives to the subject; 54. 17% of policies require pilot programs to explore new measures before they could be replicated and promoted; over 50% of policies are judged acceptable by each of the three indicators on performance appraisal( leading authorities in appraisal,content of appraisal,and effect of appraisal); less than25% of policies are judged acceptable by the indicators of appraisal time,and scoring method. The reform set out in all policies would require amendments to existing laws and regulations; about 71% needed adjustments to the current systems of administration; near 55%are still in an experimental stage. We find the following main issues: policies are often formulated haphazardly without guidance; rules for appraisal tended to be overly lenient; the reform tasks of different departments might overlap and conflict with each other; departments often design policies that favor themselves rather than benefit the public; considerable disparity between the numbers and distributions of policies and pilot zones; pilot zones are not scientifically chosen; omissions and lack of coordination in ecological civilization-related legislations. Suggestions have been proposed based on the issues which should include: emphasis on the purpose of the reform mission;refinement of specific reform tasks; optimization of pilot zone and pilot policy distribution; adjustments to laws and regulations that do not fit the reform goals,and improvement of the appraisal system for reform tasks.