北京環境治理再審視：以常態化的藍天治理為例

Revisiting Air Environmental Governance in Beijing: Cases of Re-Blue Skying Governance in Beijing

改革開放後，中國經濟與都市快速發展，城市空氣汙染問題日益嚴峻，首都北京一度成為世界上空氣污染最嚴重的城市之一。北京歷經二十多年的空氣汙染治理，空氣汙染問題基本解決。本文以北京的「煤改氣」工程為個案，結合田野調查資料，探討北京「煤改氣」工程之動態運作過程和論述建構，以及二者的互動過程。研究發現：北京空氣治理的顯著成效，是在「還北京一片藍天」願景下，持續二十年來對環境治理政策不斷調適與落實的結果。北京透過動態調整環境、經濟、民生、事故四種話語的注意力分配，以保持「煤改氣」與其他政策目標的調和；並且透過面向不同空間的差異化論述，建設永續發展的世界城市以及建構人類命運共同體的都市想像，使北京成為中國其他城市治理、空氣汙染治理的借鑑典範。本研究揭示地方政府執行長週期、跨地域的空氣治理政策的過程，與中國治理制度中「屬地化」、「任期制」研究對話，有助於重新檢視中國環境治理邏輯，以及再審視中國環境治理與政績考核的矛盾關係。

China has witnessed rapid urbanization and economic development at the cost of air pollution and environmental degradation since the Reform and Opening up. Beijing was once one of the most severely polluted cities. After more than 20 years of air pollution governance and improvement, Beijing’s air pollution problem has been fundamentally solved. Taking Beijing’s blue sky governance and Coal-to-Gas Infrastructure Project (CGIP) as a case, this research discusses the dynamic operation process of Beijing’s air pollution control through qualitative research and second-hand data method to analyze the discussion and construction of the advancement of CGIP. We found that the remarkable results of Beijing’s air governance are the result of the continuous adjustment and implementation of environmental governance policies under the vision of“Bring back Beijing’s Blue Sky in.”Additionally, Beijing dynamically adjusts the attention distribution of four discourses: environment, economy, people’s livelihood and accidents, to keep the CGIP in harmony with other policy objectives. In addition, through the construction of a sustainable world city and the urban imagination of building“a Human Community with a Shared Future”as differentiation discourses for different places, it has turned Beijing into a benchmark and demonstration for the governance and air pollution governance and improvement in other cities. What’s more, dialogue with the research on“localization”and“tenure system”in China’s governance system, Beijing’s air governance experience reveals the process of local governments implementing long-term and trans-regional air control policies, which helps to re-examine the logic of China’s environmental governance and re-examine the contradictory relationship between China’s environmental governance and political performance evaluation.