当代中国环境治理制度框架之转型: 危机与应对

随着我国环境污染日益严峻、环境质量持续下降,环境危机严重威胁到人民群众身体健康,成为中国发展道路的“软肋”。面对环境问题的日趋复杂化,环境治理的制度体系需要适应新的变革。环境治理制度体系包括基础性制度、制度框架与制度运行三个层次。基础性制度包括基础性政治制度与基础性经济制度,制度框架层次指行政机制、市场机制、社会机制以及三种机制相互作用形成的混合机制,制度执行主要包括环境督查、行政问责、公益诉讼、罚款等。本文以制度框架为分析层次,考察我国环境治理从行政主导走向行政、市场、社会合作治理转型的过程。在经济发展、人口增长以及城市化进程加快的情况下,行政主导的环境治理制度框架的弊端日益暴露出来,它不能有效地解决跨界污染、多个主体激励问题。从行政主导、举国体制、分地区分部门负责统一监管的制度框架转向行政、市场与社会之间合作治理的制度框架,整合行政、市场与社会公众三种机制,破除“区域边界”与“功能边界”,发挥协同效应是我国环境治理制度替代的现实选择。有效环境治理的制度框架仍然处于建构过程中。
Abstract：With the development of industrialization and urbanization in China, environmental pollution becomes increasingly serious; the environmental crisis is a serious threat to people's health and becomes the weakness of the China's development path. Faced with the growing complexity of environmental issues, environmental governance system needs to adapt to new changes. Environmental governance system includes basic system, institutional framework and system implementation. The basic system includes the basic political system and economic system, the institutional framework refers to the administrative mechanism, market mechanism, social mechanism and the mixture of the three. The implementation of the system includes environmental supervision, administrative accountability, public interest litigation, fines, etc. The paper explores the process of the transformation of Chinese environmental governance from administrative domination to administration, market and the social cooperation governance based on the institutional framework. With economic development, population growth and urbanization, some problems with the administration-dominated environmental governance institutional framework have been gradually exposed. It cannot effectively deal with transboundary pollution and multi-agent incentive problem. The institutional framework changed from administration-dominated, whole nation system and the supervision is divided into the sector and region into cooperation governance based on administrative mechanism, market mechanism, and social mechanism. It is the choice of environmental governance system in China, which can integrate the three mechanisms of administration, market and society, break the “regional boundaries” and the “functional boundary” and play a synergistic role. Effective environmental governance institutional framework is still under construction.