长江流域生态环境协商共治模式初探

On the deliberative-shared governance mode of ecological environment in the Yangtze River Basin

作为现代社会治理模式转型的重要方向,协商共治强调民主真实性、主体多元性及决策合法性等价值理念,在仅仅依靠政府管制的方式难以解决纷繁复杂的环境问题的背景下应运而生。协商共治理念融入长江流域生态环境治理,契合“共抓大保护,不搞大开发”的基本定位,旨在构建政府、企业和社会公众共担治理责任的大环保格局。作为善治的路径选择,协商共治理论框架包括主体多元性、客体确定性和权力多向性三个方面,旨在解决“谁来治理”“治理什么”及“怎么治理”的问题。应用上述分析框架,审视制约长江流域治理有效性的瓶颈如下:客体层面的“边界失效”和“信息不对称”、主体层面“缺乏多元性”及权力层面的“运行单向性”。在生态文明建设的背景下,基于环境管理“大部制”改革的要求,长江流域生态环境建设推行协商共治模式势在必行。具体而言,制定《长江保护法》进行流域统一和专门立法,为多元共治的大环保格局提供法律保障,旨在以良法促善治;改革长江水利委员会为综合性管理机构,协调好流域管理机构与地方河长的关系,重塑以流域为核心的管理体制,旨在提供体制保障;借助自愿环境协议推动企业自治,辅之以信息充分披露,并提供经济激励手段促进企业自愿参与,旨在实现政企共担责任;明确社会公众参与的权利义务,注重培育环保组织以保证公众参与的组织性及有效性,实现流域治理过程的全景式监督,旨在实现决策民主;最终打造“绿色升级版”的长江经济带,实现主体共存、生态共享及利益共荣的价值目标。

As an important direction for the transformation of the modern social governance model,the deliberative-shared governance emphasizes the values of democracy authenticity,subject diversity and decision-making legitimacy.It is difficult to solve complicated environmental problems relying solely on government regulation so that the deliberative-shared governance has begun to rise.The concept of the deliberative-shared governance is integrated into the ecological environment governance of the Yangtze River Basin,which coincides with the basic orientation of‘Great Protections from All Parties,Limits on Large-scale Development’.It aims to construct a big environmental protection pattern in which the government,enterprises and the public share the governance responsibility.As the path choice for good governance,the theoretical framework of deliberative-shared governance includes subject diversity,object certainty and power multi-directionality,which aims to solve the‘who’,‘what’and‘how’about governance problem.Applying the above analysis framework,the bottlenecks that restrict the effectiveness of governance in the Yangtze River Basin are as follows:‘boundary failure’and‘information asymmetry’at the object level,‘lack of diversity’at the main level,and‘operational one-way’at the power level.In the context of ecological civilization construction,based on the requirements of super ministry reform of environmental management,it is imperative to implement the mode of deliberative-shared governance in the Yangtze River Basin.Specifically,to provide legal protection for deliberative-shared governance,it is necessary to enact the‘Yangtze River Protection Law’by river basin reconciliation and special legislation so as to promote good governance by good law.To provide institutional guarantees by reshaping the basin-based management system,it is necessary to reform the Yangtze River Water Resources Commission as a comprehensive management organization and coordinate the relationship between watershed management institutions and local river chief.The voluntary environmental agreement is an important way of achieving the shared responsibility of government and enterprises,meanwhile full disclosure of information and economic incentives should be provided to promote voluntary participation of enterprises.To achieve democratization of decision-making,it is necessary to clarify the rights and obligations of the public participation,and cultivate environmental organizations to achieve panoramic supervision of the river basin governance.An‘upgraded version of green’of the Yangtze River Economic Belt should be created to pursuit the goal values of body coexistence,ecology sharing,and common prosperity.