我国开展政策环评的必要性及其基本框架研究

The Necessity and Basic Framework of China’s Policy Strategic Environmental Assessment

政策环评对决策科学化和民主化具有重要意义,我国2014年修订的《环境保护法》也为开展政策环评提供了一定法律依据。然而,由于我国政治体制和决策模式与西方国家明显不同,政策环评不能照搬国外模式,必须基于自身国情探索中国模式。为此,本文对国际上比较有代表性的政策环评实践进行了总结,对我国开展政策环评的必要性进行了分析,并探讨了我国开展政策环评需要考虑的关键问题,包括政策环评的目的、对象、重点和程序等。具体而言,对于实施政策环评的目的,可表述为健全决策机制、促进环境公平和凝聚社会共识三个方面;对于评价对象,在广义上可包含目前环境影响评价法尚未覆盖的所有高层次决策,在狭义上可将政府部门制定的行政法规、规章和规范性文件等作为重点;对于评价重点,建议整合“以影响为核心”的战略环评和“以制度为核心”的战略环评两种类型的优点,兼顾影响评价和制度评价;对于评价程序,政策环评应基于完全理性决策模式,与政策过程充分融合,在不同阶段分别发挥不同作用。

Policy Strategic Environmental Assessment(SEA)in China is of great signi ficance in promoting scientific and democratic decision-making,and the new revised Environmental Protection Law in 2014 has provided some legal basis for it.However,China’s decision-making system is quite special and can’t simply apply the policy SEA mode of other countries.In light of the scarcity of literature exploring and practices,this paper attempts to provide a comparative overview of policy SEA worldwide,clarify the needs of Policy SEA in China,and finally bring forward a framework as well as key issues of Policy SEA for China,which includes the objectives,targets,focus and procedure.For the objectives,they should orientate to improve Decision-making Mechanism,promote Environmental Equity and build Social Consensus.For the targets,all high-level decisions that are not covered by the current EIA law should be included in a broad sense,but the focus should be the normative documents,Rules and Regulations formulated by government departments.For the focus of evaluation,the advantages of“impact-centered”SEA and“institution-centered”SEA should be integrated.For the procedure,Policy SEA should be based on the complete rational decision-making model,fully integrated with the policy process,and play di fferent roles in di fferent stages of policy formulation.