苏冬 刘健

Su Dong, Liu Jian

关键词：治理情境；行政协议；行动者网络；荷兰；西南三角洲

Keywords：Governance Scenario; Administrative Agreement; Actor Network; The Netherlands; The Southwest Delta

摘要：

位于莱茵、默兹、斯海尔德河下游交汇处的荷兰西南三角洲地区承担着洪水防御、淡水供应、空间利用等多重任务，复杂的行政跨界状态使其流域管理颇具挑战，被认为是“跨界治理实验室”。近年来，该地区作为荷兰“国家三角洲计划”中的特定战略分区，提出“努力在2050 年前成为世界上第一个具有气候适应能力的地区”的雄心目标，并为此不断深化跨界治理探索。本文将多元治理观嵌入跨界区域，从治理情境、治理工具和治理网络三个维度，分析荷兰西南三角洲跨界流域治理的治理情境变化及其话语转向与决策模式转变的适应逻辑；探究其协议工具运用和行动者网络构建的最新实践；总结其面向气候变化和水资源管理的跨界治理经验；并着眼于我国现代化跨界治理实践及其理论化诉求，提出基于复杂治理情境认知进行“图景共筑”，提升区域协议工具的规范度和长效执行力，扩大网络治理并发挥行动者在跨界治理网络中的转译能力三个方面的启示和建议。

Abstract：

The Southwest Delta of the Netherlands, standing at the confluence of the Rhine, Meuse and Scheldt rivers, is considered as a “laboratory” for cross-border governance,  because of its multiple tasks in flooding control, water supply and spatial planning and its complex transboundary status, both of which make its watershed management quite challenging. In recent years, as a specific policy zone of the Dutch National Delta Program, it has continued its explorations in cross-border governance, targeting at the ambitious goal of “becoming the world’s first climate-resilient region by 2050”. Adopting the idea of pluralistic governance and the perspectives of governance scenarios, governance tools and governance networks, this paper analyzes the shifts of this transboundary region’s governance scenarios and the corresponding adaptation of its discourses and decisions, and summarizes its latest expertise in the application of protocols and the construction of actor networks. Based on the Dutch experience of cross-border governance of climate change and water management and in view of China’s practice and theorization of cross-border governance, this paper puts forward the following suggestions: promoting “spatial image building” based on the understanding of complex governance scenarios; enhancing the regulative authority and long-term implementation of regional agreement tools; expanding the network governance and strengthening the translational capacity of actors.

苏冬，清华大学建筑学院，博士；浙江大学学生职业发展培训中心，讲师。13702195508@163.com
刘健（通信作者），博士，清华大学建筑学院副院长，教授，博士生导师。liujian@tsinghua.edu.cn

• [1] OECD. Water governance in the Netherlands: fit for the future?[R]. Paris: OECD Publishing, 2014.
  [2] HAN M, BREGT A, DAMMERS E, et al. New perspectives on urbanizing deltas: a complex adaptive systems approach to planning and design[M]. Amsterdam: MUST Publishers, 2015.
  [3] HAN M. Reinventing the Dutch Delta: complexity and conflicts[J]. Built environment, 2009, 35(4): 432-451.
  [4] HAN M, NIJHUIS S. Urbanized deltas in transition[M]. Amsterdam: Techne Press, 2014.
  [5] DE VLIEGER B. The New Delta: The Rhine-Meuse-Scheldt-Delta in transition[M]. London: Jap Sam Books, 2017.
  [6] HUITEMA D, MOSTERT E, EGAS W, et al. Adaptive water governance: assessing the institutional prescriptions of adaptive (co-)management from a governance perspective and defining a research agenda[J]. Ecology and society, 2009, 14(1): 26.
  [7] KOPPENJAN J, KLIJN E H. Managing uncertainties in networks: public private controversies (1st ed.)[M]. London: Routledge, 2004: 289.
  [8] PETERS B G. Managing horizontal government: the politics of coordination[J]. Public administration, 1998, 76(2): 295-311.
  [9] 李兵, 昌硕. 社会政策问题的情境主义框架：政治性、情境互动与元治理[J]. 社会工作与管理, 2022, 22(3): 92-100.
  [10] 宋雄伟, 张翔, 张婧婧. 国家治理的复杂性：逻辑维度与中国叙事——基于“情境—理论—工具”的分析框架[J]. 中国行政管理, 2019(10): 69-74.
  [11] MEULEMAN L. Metagovernance for sustainability: a framework for implementing the sustainable development goals (1st ed.)[M]. London: Routledge, 2019.
  [12] VAN POPERING-VERKERK J, VAN BUUREN A. Decision-making patterns in multilevel governance: the contribution of informal and procedural interactions to significant multilevel decisions[J]. Public management review, 2016, 18(7): 951-971.
  [13] 苏冬, 刘健. 规划机构改革与空间治理现代化的路径选择[J]. 城市规划, 2020, 44(12): 18-27.
  [14] 薛澜, 李宇环. 走向国家治理现代化的政府职能转变：系统思维与改革取向[J]. 政治学研究, 2014(5): 61-70.
  [15] 何植民, 齐明山. 网络化治理：公共管理现代发展的新趋势[J]. 甘肃理论学刊, 2009(3): 110-114.
  [16] VERMOOLEN M, HERMANS L. The influence of interdisciplinary collaboration on decision making: a framework to analyse stakeholder coalitions, evolution and learning in strategic delta planning[J]. EGU General Assembly Conference Abstracts, 2015: 9644.
  [17] VAN MEERKERK I, VAN BUUREN A, EDELENBOS J. Water managers’boundary judgments and adaptive water governance. an analysis of the Dutch Haringvliet Sluices case[J]. Water resources management, 2013, 27(7): 2179-2194.
  [18] 吴莹, 卢雨霞, 陈家建, 等. 跟随行动者重组社会——读拉图尔的《重组社会：行动者网络理论》[J]. 社会学研究, 2008(2): 218-234.
  [19] 苏冬, 刘健. 调解中枢与协调平台——荷兰空间规划中的国家权力地位回归与角色再塑[J/OL]. 国际城市规划, 2022[2023-07-17]. https://doi.org/10.19830/j.upi.2022.612.
  [20] GERRITSEN H. What happened in 1953? the big flood in the Netherlands in retrospect[J]. Philosophical transactions of the Royal Society a: mathematical, physical and engineering sciences, 2005, 363(1831): 1271-1291.
  [21] CRAEYMEERSCH J A, TANGELDER M, YSEBAERT T, et al. Borging van systeemkennis en gei?ntegreerde aanpak van leerprojecten in de Zuidwestelijke Delta: Een studie in kader van de Natuurambitie Grote Wateren[R]. Yerseke:  Wageningen Marine Research, 2017.
  [22] VERKERK J. Verbindende programmasturing in de Zuidwestelijke Delta[J]. Public administration, 2010.
  [23] 艾少伟, 苗长虹. 从“地方空间”、“流动空间”到“行动者网络空间”： ANT 视角[J]. 人文地理, 2010, 25(2): 43-49.
  [24] 汪雪. 基于行动者网络理论的历史街区更新机制[J]. 规划师, 2018, 34(9): 111-116.
  [25] 余敏江, 邹丰. 让社会活力激发出来：长三角水环境协同治理中的行动者网络建构[J]. 江苏社会科学, 2022(1): 43-51, 242.
  [26] 刘祖云, 杨华锋. 政府的“三种能力”：情境认知、组织调适与社会治理[J]. 上海行政学院学报, 2009, 10(1): 57-65.
  [27] 周大然, 曾爱娟. 府际治理视阈下地方政府合作协议的规范化——以成渝双城经济圈为例[J]. 西南石油大学学报( 社会科学版), 2022, 24(4): 30-37.
  [28] 吴伟达. 政府间行政协议：一种长三角区域主要治理机制的选择和完善[J]. 宏观经济研究, 2020(7): 153-164.

• 收起