黄河流域水资源治理模式应从控制向良治转变

“治理”是国际社会最近十年发展起来的一种新的管理国家公共事务的思想。从旧的控制到良治，是现代治理追求的目标，其内涵包括扩大公民对公共事务的参与，从只有政府的一个制度实施者转变为包括政府、非政府组织、公民、私营部门、媒体、国际组织在内的多个制度实施者，从黑箱操作到信息公开和信息透明。我国传统意义上的流域治理，基本是一个流域开发和兴利除害的工程概念，和现代治理的概念有很大判别。长期以来我国江河流域水资源的分配，主要采取指令配置、自上而下的控制模式、在水资源日益稀缺的今天，这种治理模式存在严重的体制失效，流域管理呼唤新的治理模式。目前关于流域管理体制改革的探讨已经从政策层面推进到制度层面，水权与水市场的探索也已全面展开。但遗憾的是，流域 讨论大多局限于泛泛的统一管理的思路上。统一管理是一种强化集权控制的思想，虽然已经在实践中发挥了重要作用，但也有其自身的局限性，仍然不能完全回避体制失效的问题。本文借鉴现代治理理念，提出黄河流域的良治框架，特别指出流域治理模式转变的关键是水公共部门的转型，水管理体制的改革归根结底是水公共机构职能的转变。

Change in Management Mode about Water Resources from Control to Modern Management

Having evolved from previous management mode featuring control, modern management means that more citizens participate in management of public affairs. It also means that composition of policy executives change from only government to a multi participant body of government, NGOs, citizens, private organizations, media, international organizations. Besides, it indicates all the things are done not in a black box as carried out before, but in such a way with information open and transparent. In China, far behind modern management, traditional river basin management features development and engineering for exploitation and for eliminating/alleviating possible disasters. Traditional river water resources is distributed by way of control, i.e, top to bottom designation, which has been proven to be a systematic failure. On the basis, a new mode is needed to deal with current water shortage . The reform in the field has gone from a policy level further to system level with water rights and water market having been ushered in at a large scale. But it is a pity that discussions about system reform remains going within a frame of united management. The latter is a kind of intensified central control, remains unable to address the problems of system failure in spite of the fact that it functioned well in the past. It is proposed that the key point in changing river basin management mode is to change water public sections. The essence in water management system is to change their functions.