市场转型中国有企业与环境监管中立性——以大型国有石油石化企业为例

State-Owned Enterprises and the Autonomy of Environmental Regulation in China:A Case Study of the State-Owned Petroleum Enterprises in China

在市场转型和监管国家建设的过程中,计划经济体制下国家与国企互为垄断和依赖的父爱主义传统发生了深刻的改变,国家的监管目标与企业的利润导向发生了重要的分歧。聚焦于石油石化产业的环境监管,本文力图揭示中国监管国家面对的独特挑战以及国有企业影响监管中立性的机制。在对国有石油石化企业的环保监管中,与西方的监管捕获以及非公企业依靠非正式关系和财税依赖来获取影响力不同,国有企业作为国家内部人可以利用其体制内的地位直接主导标准制定、适用法外之规则、以专业人员内部人圈子影响环评,并且相对于非公企业与地方政府的关系,它与地方政府的博弈更加政治化。进而,国企的影响力并不意味着它们能以其体制资源支配国家,恰恰相反,它意味着政治权力和权威仍最具支配性。不断弱化国有企业的政治身份,不断推动基于普遍主义和法治的监管理性化才将有助于中国监管国家中立性的发展。

In the process of market transformation and regulatory state formation,the patriarchal relationship between the state and state-owned enterprises(SOEs)has profoundly changed.Focusing on the environmental regulation of the petroleum and petrochemical industry,this paper attempts to reveal the unique challenges faced by China s regulatory state and the influential mechanisms of SOEs on regulatory autonomy.SOEs can directly make standards,circumvent legal rules,and influence the environmental impact assessment.Compared with private enterprises,the state-owned enterprises have a more politicized relationship with local governments.Weakening the political identity of SOEs and continuously promoting the rationalization of regulation based on universalism and legalization would benefit the autonomy of the regulatory state in China.