战略环境评价中的战略缺陷分析

ANALYSIS OF STRATEGIC FAILURES IN STRATEGIC ENVIRONMENTAL ASSESSMENT

战略环境评价的目的是消除或降低因战略缺陷造成的环境影响 ,从战略决策源头控制环境问题的产生。战略缺陷将通过市场结构、企业行为的改变而产生环境影响 ,是导致环境问题的根源。战略缺陷分析是战略环境评价的重点内容 ,是制定战略环境影响控制、减缓措施或战略替代方案的主要依据。分析了战略缺陷的两种类型 :社会经济发展战略未充分考虑其环境影响以及环境与资源战略不符合社会经济实际。重点研究了导致战略缺陷产生的原因 ,即内部性、决策失误、低效率、权力分配不均及政府寻租行为。提出从战略内容失误、战略执行失真和战略组织失效 3个维度进行战略缺陷分析的方法。最后结合长春经济技术开发区战略进行实例研究 ,发现该战略缺陷表现在环境与社会经济发展战略不对称、投资导向政策考虑当地资源及国家有关政策不充分、产业布局规划与开发建设行动不一致以及土地利用优惠政策导致的效率偏低 4个方面 。

Strategic environmental assessment (SEA) is the application of the principles and methods of environmental impact assessment (EIA) on strategic level, including law, policy, plan and program (LPPPs). And SEA is a formal, systemic, and synthetic assessing process for a strategy and its alternatives' environmental impact.The purpose is to eliminate or mitigate environmental impacts caused by strategic failures, and to control environmental problems from decision making sources. According to SCP(Structure Conduct Performance) analysis framework of Industrial Organization Theory, strategic failures can affect market structure, then change the conducts of corporation, and through which cause some environmental impacts. So strategic failures are the basic sources of environmental problems, and the analysis of strategic failures is the key work in SEA, especially in the process of strategy analysis. Two types of strategic failures are analyzed first.They are the failures of socie economy strategy without a sufficient consideration of environmental impact, and the failures of environment or resources strategy without a sufficient consideration of the socie economy conditions. And the reasons responsible to the failures are also analyzed, which include internality, misplay in decision making, low efficiency, apportion power unfairly and seek rent action in government. The strategic failure analysis methods from three aspects including content failures, enforcement failures, and organization failures of strategy are proposed. Content failures include indefinite target, strategic program being not optimized and relevant strategies without coordination, while enforcement failures include no finalization into action, amplification, missing and substitution of strategy on purpose, and organization failures include understanding failures, divergent interests among decision makers, failures in collective decision making, and unconscionable allocation resources. In the end, research on Changchun Economy Technology Development Zone (CETDZ) as a case is presented. And four failures were found in the strategies of CETDZ, including environmental strategy is not symmetry to socie economy strategy, investment policies' making lacks sufficient consideration of local resources and relevant policy of China, industrial layout is inconsistent to developing construction, and preferential policy on land utilization causes low efficiency.