中国农药包装废弃物治理政策的演进脉络与工具选择——基于量化分析的视角（2001—2024）

EVOLUTION AND TOOL CHOICE OF CHINA'S PESTICIDE PACKAGING WASTE MANAGEMENT POLICY——PERSPECTIVES BASED ON QUANTITATIVE ANALYSES (2001—2024)

关键词:  农药包装废弃物治理  政策体系  演进脉络  工具选择  文本分析

Key words:  pesticide packaging waste treatment  policy system  evolutionary process  tool choice  text analysis

摘要:

目的 农药包装废弃物治理是推动经济社会发展全面绿色转型的重要举措，研究政策变迁规律与特征，可为未来政策制定实施提供理论遵循和现实参考。方法 文章以2001—2024年中央层面及国家级试点区域（省级）的农药包装废弃物治理政策文本为研究对象，构建“政策体系—演进脉络—工具选择”三维分析框架，采用政策文献计量法与内容分析法，深入剖析农药包装废弃物治理政策的体系结构与演进特征，总结内在逻辑与特征。结果 （1）中国农药包装废弃物治理政策呈现3阶段演替特征：探索起步阶段（2001—2010年）、初步形成阶段（2011—2015年）、推进发展阶段（2016—2024年）。（2）政策体系结构逐步完善，发布数量梯度渐进增长、政策类型以部门规章为主，形成多领域部门协同联动机制。从政策演进特征看，探索起步阶段兼顾农药污染防治与包装废弃物处理，初步形成阶段构建起系统性政策体系，推进发展阶段建立多元主体协同共治机制。（3）中央层面及国家级试点区域省级层面环境型政策工具占据主导地位，需求型政策居于辅助地位，供给型政策工具处于边缘地位。（4）政策变迁呈现“制度位阶提升—政策体系整合—试点经验推广—治理主体多元”的演进路径。结论 未来，应建立健全监督激励机制、强化需求侧政策工具中的社会参与机制、平衡政策工具要素分布、增加目标规划政策工具的运用频率，协同提升政策执行效力。

Abstract:

Pesticide packaging waste management is an important initiative to promote the comprehensive green transformation of economic and social development, and the study of the law and characteristics of policy change can provide theoretical guidance and practical reference for future policy formulation and implementation. Taking the pesticide packaging waste governance policy texts at the central level and national pilot regions (provincial level) from 2001 to 2024 as the research object, this research constructed a three-dimensional analysis framework of ‘policy system—evolution —tool selection’, and adopted the policy bibliometric method and content analysis method to explore the system structure and evolution of the pesticide packaging waste governance policy in depth, and summarize the internal logic and characteristics. The results found that: (1) China's pesticide packaging waste governance policy showed three stages of evolution: the exploratory start-up stage (2001—2010), the initial formation stage (2011—2015), and the development stage (2016—2024). (2) The structure of the policy system had been gradually improved, with a gradient of gradual growth in the number of releases, the type of policy being dominated by departmental regulations, and the formation of a synergistic linkage mechanism between multiple sectors. In terms of policy evolution, the exploration and start-up phase took into account pesticide pollution prevention and packaging waste treatment, the initial formation phase built up a systematic policy system, and the promotion and development phase established a mechanism for synergistic co-management by multiple actors. (3) The central level and the provincial level of the national pilot region were dominated by environmental policy tools, with demand-type policies in a supporting position and supply-type policy tools in a marginal position. (4) The policy change showed the evolution path of ‘institutional level upgrading—policy system integration—pilot experience promotion—diversity of governance subjects’. In the future, we should establish a sound monitoring and incentive mechanism, strengthen the social participation mechanism in demand-side policy tools, balance the distribution of policy tools, and increase the frequency of the use of target planning policy tools, so as to synergistically improve the effectiveness of policy implementation.