社会稳定风险评估的法治批判与转型

Legal Criticism and Transformation of Social Stability Risk Assessment

地方政府为了解决传统刚性维稳机制成本高昂、末端治理、被动应对等缺陷而创制的社会稳定风险评估机制(下称"稳评")自2005年以来发展迅速。"稳评"最初的运作模式与法治的价值是相背离的,侵蚀和挤压了行政决策中的法治空间,并可能导致消极行政和不作为,甚至威胁到司法权威。但是,"稳评"在实际推行过程中,为了实现其有用性和可信度,逐步嵌入了公众参与、风险沟通等具体装置,显现了被改造为一种民主决策机制的契机。转型之后的"稳评"在合理设定适用范围、坚持运用参与式方法、赋予评估结果以弹性效力的条件下,有助于增强行政决策的民主性,有助于沟通行政决策中"利害"和"是非"两个价值维度。在《重大行政决策程序暂行条例》的制定中,应当将"稳评"移出"风险评估"而纳入"公众参与",将"稳评"的实施提前到决策动议或项目规划阶段,规定补充评估或后续评估机制,将风险沟通拓展到重大行政决策的全过程。

Social Stability Risk Assessment(SSRA)in major administrative decisionmaking,a mechanism created by local governments to solve the problems of high cost,end governance,and passive response in traditional rigid stability maintenance mechanisms,has developed rapidly since 2005.The initial operational mode of SSRA deviates from the value of the rule of law,erodes and compresses the space of the rule of law in administrative decision-making,and may lead to negative administration and inaction,even threatens the judicial authority.However,in the course of its actual implementation,such specific devices as public participation and risk communication have been gradually embedded into SSRA to achieve its usefulness and credibility,thus providing an opportunity to transform it into a democratic decision-making process.After the transformation and under the condition of reasonably setting the applicable scope,adhering to the participatory method and giving the evaluation results flexible effectiveness,SSRA can be conducive to enhancing the democracy of administrative decision-making and communicating between the two value dimensions of“interests”and“right and wrong”in administrative decision-making.In the formulation of the Interim Regulations on Major Administrative Decision-making Proceedings,SSRA should be removed from the chapter on“risk assessment”and incorporated into the chapter on“public participation”.The implementation of SSRA should be advanced to the stage of decision-making motion or project planning,supplementary or follow-up assessment should be stipulated,and risk communication should be extended to the whole process of major administrative decision-making.