中国地膜污染防控政策结构与演进基于1990—2020年政策文本的量化分析

THE STRUCTURE AND EVOLUTION OF CHINA'S PLASTIC FILM POLLUTION PREVENTION AND CONTROL POLICIESQUANTITATIVE ANALYSIS BASED ON POLICY TEXTS FROM 1990 TO 2020

关键词:  地膜污染防控政策  政策演进  政策结构  ROST  语义网络结构图

Key words:  plastic film pollution prevention and control policy  policy research  policy structure  ROST  semantic network structure diagram

摘要:

目的 地膜覆盖技术作为中国应用较为广泛的农业栽培技术，在为农业经济发展及粮食生产保障做出了巨大贡献的同时，也由于长期以来地膜生产、使用及回收环节的不规范导致了诸多环境问题，废弃地膜污染治理刻不容缓。基于中国农业绿色发展的时代背景及《农膜回收行动方案》中提出的2020年农膜回收利用率达80%的时间节点下，对中国30年地膜污染防控政策进行系统梳理及规律总结，有利于把握政策方向及国家工作重点。方法 文章基于1990—2020年中共中央、国务院及相关部门发布的328份地膜污染防控政策，首先运用数理统计方法对政策数量及政策结构进行处理分析，描述政策的基本特征，其次基于ROST分析工具及Netdraw语义网络结构图绘制工具深入剖析政策文本，进一步分析政策演进规律。结果 （1）1990年以来，中国地膜污染防控政策在数量上呈现持续上升态势，且在2015年以后上升增速显著提高。（2）2000年以后地膜污染防控政策发布类型以部门工作性文件为主，政策影响力偏低。（3）30年地膜污染防控政策呈现由重污染治理到重资源化利用、重宣传引导到重经济激励、政策措施逐渐细化可执行性逐渐增强的演变特征。（4）基于标志性政策的出现及中国地膜污染防控政策的重心转变，将相关政策划分为生产供应保障、环保意识形成、污染综合防治、残膜资源化利用4个阶段。结论 根据地膜污染防控政策分析结果，提出地膜污染防控政策制定方面应尽快完善上位法、对全产业链进行系统规定、加强不同部门间交流协作；政策工具使用方面应针对于不同环节，重视政策手段多元化应用，发挥不同政策工具间的协同效应。

Abstract:

As a widely used agricultural cultivation technology in China, plastic film mulching technology has made great contributions to the development of agricultural economy and food production security. At the same time, it has also resulted in a lot of irregularities in the production, use and recycling of mulch film over a long period of time. Environmental problems, pollution control of waste mulch film brooks no delay. Based on the background of China's agricultural green development and the time node proposed in the "Agricultural Film Recycling Action Plan" that the recycling rate of agricultural film will reach 80% in 2020, a systematic review of China’s 30-year mulch film pollution prevention and control policies and a summary of the rules is summarized, which is conducive to grasp the policy direction and national work priorities. Based on the 328 policies for the prevention and control of mulch film pollution issued by the Central Committee of the Communist Party of China, the State Council and relevant departments from 1990 to 2020, this research firstly used mathematical statistics to process and analyze the number of policies and policy structure, and described the basic characteristics of the policies. Secondly, based on ROST analysis tools and Netdraw semantic network structure diagram drawing tools, it made an in-depth analysis of policy texts, and further analyzed the law of policy evolution. The research results showed that: (1) Since 1990, China's plastic film pollution prevention and control policies had shown a continuous increase in number, and the growth rate had increased significantly after 2015. (2) Since 2000, the types of policies issued for the prevention and control of mulch film pollution were mainly departmental working documents, and the policy influence was relatively low. (3) Over the past 30 years, mulch film pollution prevention and control policies had evolved from heavy pollution control to heavy resource utilization, heavy propaganda and guidance to heavy economic incentives, and policy measures were gradually refined and enforceable. (4) Based on the emergence of iconic policies and the shift of focus of China's mulch film pollution prevention and control policies, the relevant policies were divided into four stages, namely production and supply guarantee, environmental protection awareness formation, comprehensive pollution prevention and control, and residual film resource utilization. Therefore, according to the analysis results of mulch film pollution prevention and control policies, it is proposed that the formulation of mulch film pollution prevention and control policies should improve the upper law as soon as possible, systematically stipulate the entire industry chain, and strengthen exchanges and cooperation between different departments; the use of policy tools should be targeted at different links, pay attention to the diversified application of policy instruments, and give play to the synergies between different policy instruments.