中国环境信息公开的政策变迁:路径与逻辑解释

Policy change of China's environmental information disclosure:path and logical explanation

自1989年环保法明确提出环境信息公开理念以来,我国环境信息公开历经了30年的实践与发展,环境信息公开政策经不断地调整与变迁逐步走向完善。如何解释这一政策变迁内在的过程逻辑,是理解政策发展、进而主动调试政策走向的关键环节,也是丰富中国本土政策变迁理论及因应当下信息公开顶层设计的必要探讨。基于此,本文应用案例研究方法,以倡议联盟框架及政策学习理论为分析框架,对环境信息公开政策变迁历程的路径、动力因素及变迁逻辑进行分析。研究发现:我国环境信息公开实践的发展呈现了由"隐含式公开"经"半公开"到现今"正式公开""集中式公开"的表征。从政策视角看,存在内部与外部两条互相交织的路径共同推进环境信息公开政策变迁。外部路径表现为重大事件直接或间接推动政府政策的出台;内部路径表现为各联盟为维护地位与话语权而争取资源并进行政策学习,推进了政策渐进式演进。其间涉及四个关键变量:重大事件、联盟资源、政策学习及政策信念。四个变量相互作用与影响并解释了政策变迁的逻辑:外部事件或焦点事件的发生影响了原有的政策信念体系,进而影响倡议联盟结构及其资源,各联盟利用外部事件带来的影响进行策略选择来争取联盟资源,并在期间开展政策学习,政策学习进而促进新的政策信念的产生,带来政策变迁。目前来看,环境信息公开显现出政策发展较被动、社会学习的条件不成熟、政策核心信念尚未达成共识等问题。为此,中央政府应主动扭转外部途径推动政策变迁、整合部委、地方政府间碎片化的联盟资源,推进社会学习及核心信念共识的达成。同时,民间组织应加强主动式政策学习,履行环境信息公开政策执行与政策实践中的监督责任,形成环境信息公开的社会常态。

Since the environmental law established the concept of environmental information disclosure in 1989, China 's environmental information disclosure has experienced over thirty years of the progress of practice and development. How to explain the internal logic of this policy change progress is the critical link to understand the policy development and then to actively adjust the policy. It is also necessary to enrich the theory of policy change in China and to make top-level design of information disclosure system.Based on this,the paper uses a case study method and takes theories of Advocacy Coalition Framework and Policy Learning as the analysis framework to analyze the path,dynamic factors and change logic of the environmental information disclosure policy. The result shows that the development of environmental information disclosure in China presents a process,from ‘implicit disclosure'to ‘semi public',and then to ‘formal public ' and ‘centralized public '. From the perspective of policy,there are two interwoven paths between internal and external,jointly promoting the progress of environmental information disclosure policy. The external path reflects that the major events directly or passively promote the policy change; and the internal path reflects that the alliance seeking resources to maintain status and discourse power in politics,proceeds policy learning and progressively promotes the policy change. The process involves four interacting variables: major events,alliance resources,policy learning and policy beliefs,which explain the logic of policy change: the occurrence of external or focal events affect the original policy belief system,and thereby affect the initial structure and resources; then,the alliance uses the impact of external events to make strategic choices so as to strive for Alliance Resources and to conduct policy learning during the period,which leads to the emergence of new policy belief and thus promotes policy change. At present,the development of environmental information disclosure policy is passive,the social learning condition is immature,and the policy core belief has not yet reached a consensus. Therefore,the central government should take the initiative to reverse the external path,integrate fragmented resources between ministries and local governments,and promote social learning and the consensus of core belief. At the same time, non-governmental organizations should strengthen active policy learning, and fulfill the supervision responsibility of the implementation and practice of environmental information disclosure policy,so as to form the social norm of environmental information disclosure.