元治理视阈下中国环境治理的策略选择

Strategy Choice of China's Environmental Governance from the Perspective of Metagovernance

针对当今社会提出的解决复杂性问题的需求,元治理理论主张简化模式和实践,以减少处理问题的复杂性,重视各种治理模式的相互协调配合;同时,要重视稳定关键角色的取向、期望以及行为准则。政府、市场、社会网络由于参与的身份和角度不同,必然会倾向于各自的偏好,但是对于环境治理这一复杂性问题,单一的治理模式均不足以解决环境问题。我国环境治理在传统模式下,政府以"统领"而非"治理"的姿态出现,各种治理模式、市场和社会网络机制无法有效运作。发展元治理理论,强化自治理,强调与政府权力相对应的责任,即政府运用手中的权力,承担起有效选择和协调各种治理模式"共振",防止治理模式之间的互相倾轧,通过保持必要的多样性增加治理的弹性以应对环境治理这个复杂系统的责任。首先,将政府定位在"同辈中的长者",意指政府的层级治理与市场治理和社会网络治理之间的关系是平等的,政府不能也不可能介入环境治理的全部环节;在平等的基础上政府要起到带头作用,运用法律法规,通过强制力达成环境治理模式的共振。其次,强调市场配置资源的决定性作用。政府要加强制度建设,为市场经济运行创造良好的外部环境,维护市场运行秩序,促进竞争,使市场的成本-收益机制得以有效运行,以此引导资源和技术在市场中的流向。第三,政府在促进公众参与的同时要适当鉴别和明确利益相关者,避免参与对象缺乏代表性和广泛性,同时注意杜绝环境相关政策的利益集团主导以及"一言堂"现象,畅通诉求表达机制和完善矛盾化解调处机制。第四,环境治理的政策制定要科学、明确、具体、细化。

In order to solve the problems of complexity in today＇ s society, metagovemance theory claims that we should simplify models and practices to reduce the complexity of the problems which should be dealt with and attach great importance to the coordination of three forms of governance - hierarchies, markets and networks. Meanwhile we also should attach great importance to the orientations, expectations and codes of conduct of stable key roles. Due to the differences in the participation of the roles and the perspectives of the government, the market and the societal networks, they all have their nature preferences, but every single form of governance tend to be failure when confronting the environmental governance because of its high complexity. China＇ s environmental governance is still in traditional mode, it is still ＂govern＂, but not ＂governance＂. All forms of governance, market and societal network mechanism cannot operate efficiently. The development of metagovernance theory and the reinforcement of self - governance focus on the responsibilities which are choosing and ＇ collibrating＇ different modes of governance, keeping them from undermining each other, and maintaining requisite variety to increase the flexibility of governance with state power, which correspond to state power. Firstly, it is important to redefine the government as ＂the elder of peers＂. It implies that hierarchies, markets and networks are equal so that the government cannot intervene in all segments of environmental governance. Meanwhile the government should play the leading role on the basis of the equality to achieve the collibration of three forms of governance through laws and regulations with coercive force of the state. Secondly, the decisive role of the market in resource configuration must be confirmed. The government should strengthen the system construction and create a good external environment for market operation, maintain the market order, promote competition, and make the cost - income mechanism operating efficiently in order to guide the flow of resources and technology in the market. Thirdly, when promoting the public participation, the government must avoid the lack of representativeness and universality of the participants by distinguish stakeholders properly. At the same time, the government should pay attention to prevent environmental policies from being dominated by interest groups and ＂one person alone has the say＂, and open the expression of demands and improve the contradiction resolving and mediation mechanism. Finally, the policy - making of environmental governance must be scientific, clear, specific, and refined.