走向智慧型治理:环境治理模式的变迁研究

Towards Intelligent Governance: On Transformation of Environmental Governance Mode

改革开放以来,我国环境治理模式经历了三个阶段的变迁:1978-2001年,采取功利型环境治理模式,中央和地方政府都奉"经济发展优先"为圭臬,环境治理存在"价值理性"的缺失,沦为一种服务于国家经济大局的边缘性治理模式;2002-2013年,进入了管制型环境治理模式,中央权威矫正了功利主义,实现了"兼顾公平"的价值转向,但是,公司化的地方政府与中央权威的治理目标函数出现偏差,环境法律法规上的软约束、缺少问责、公众参与机制不畅等缺陷导致地方政府出现"象征性治污""不出事逻辑"等问题,存在"制度理性"的缺失;2014年至今,在新《中华人民共和国环境保护法》的推动下,环境治理进入了"合作型"模式,该模式融入了现代化国家治理理念,突出了政府之外的市场和社会这两极的作用,初步搭建了形式完备的权利义务结构框架。但是,在对体现"合作型"环境治理特点的"河长制"的观察中,发现合作型治理无法解决信息不对称问题。徒法不足以自行,智慧时代下应当实现制度理性和技术理性的结合,运用大数据、人工智能、区块链等技术工具,推动环境治理模式向"智慧型"环境治理的路向变迁。

Since the reform and opening-up policy was introduced,China’s environmental governance model has undergone three stages of transformation. From 1978 to 2001,China adopted the utilitarian mode in environmental governance,both central and local governments gave priority to economic development. The environmental governance became a kind of marginal governance that served the overall situation of economic development,in which existed a lack of " value rationality". From 2002 to 2013,China entered the stage of the regulatory mode. The central authority corrected the utilitarianism,and " considering fairness" became its value orientation.However,there was a deviation in objective function between the corporatized local government and the central authority’s governance.The defects in environmental laws and regulations,such as soft constraints,lack of accountability,and poor public participation led to the emergence of " symbolic pollution control " and " non-accident logic " in local governments. Thus,there existed a lack of " institutional rationality". In 2014,driven by the new environmental protection law,China entered a stage of cooperative governance mode,which integrated the concept of modern state governance,highlighted the role of market and society,and initially built a wellformed institutional framework. However,from the observation of the system of river chiefs,which reflected the characteristics of cooperative governance,we found that cooperative governance could not solve the problem of information asymmetry. The law alone is not enough. In the era of wisdom,we should achieve the combination of institutional rationality and technical rationality,and use technical tools such as big data,artificial intelligence,blockchain,etc. to promote the transformation of the environmental governance mode towards an intelligent mode.