重大工程社会稳定风险评估中的“制度堕距”现象及成因:基于文本与个案实践的对比

An Analysis of Phenomena and Reasons of “System Lag” in the Social Stability Risk Assessment of Major Engineering:Based on Investigation of Texts and Cases

近年来,为防控重大工程上马引发社会冲突,我国引入工程项目的社会稳定风险评估制度(简称"稳评")。但在制度推行过程中却产生"制度文本"与"制度执行"存在差距的"制度堕距"现象,削弱了"稳评"制度的风险防控效用。以"B市A垃圾焚烧厂反建事件"为个案,对6份与之相关的"大型工程社会稳定风险评估"制度文本进行梳理,并与个案的稳评实践对比分析后发现,重大工程社会稳定风险评估中的"制度堕距"具体体现在目标确定、风险评估、风险防控和风险追责四个阶段,包括目标长期性与人本化欠缺、评估时序不当、评估内容偏狭等十项内容。其原因在于政府执行能力与意愿不足、稳评制度本身不完善以及政治环境制约三个方面。在弥合文本与实践之差距时,需综合考虑上述影响因素,从风险评价各阶段入手分别进行干预。

In recent years, to control and avoid social conflicts led by major engineering, China has introduced the social stability risk assessment （hereafter referring as SSRA）. However, when implemented the SSRA produced phenomena like differential system lag between the system text and its execution. Such a lag has weakened the risk control of SSAR. After reorganizing relevant system texts of the SSAR of 6 major engineering and comparing and analyzing the case of ＂Rejection of building waste incinerator A in the B city＂, the author finds that the downward system lag is reflected in 4 stages, i.e., target confirmation, risk assessment, risk control and risk responsibility confirmation in the SSAR of the major engineering with 10 items like the absence of long-term target and peopleorientation, inappropriate time order of assessment, partial assessment. The causes can be attributed to 3 aspects, including insufficient government execution and willingness, incomplete SSRA system and limitation of political environment. In the process of completing gas of texts and the practice, all factors above should be considered comprehensively and should be coped from all stages of the risk assessment.