论预防式社会性监管——以化工行业风险监管为例

Discussion on Preventive Social Regulation:Taking Risk Regulation of Chemical Industry as Example

科学技术引发的大量风险使传统社会性监管遭遇失灵。为完成风险规制任务,应在传统社会性监管中引入预防监管。内含风险预防、合作监管等理念的预防式社会性监管制度,既有助于政府履行风险监管义务,又回应了风险社会下安全、健康、环境监管的现实需求。考察具有风险特性的化工行业,其风险广泛分布于生产、贮存、运输等环节且难测难治,同时化工行业社会性监管预防性不足,存在风险识别不准、评估不科学、处置不及时、信息沟通不顺畅等问题。因此,构建预防式社会性监管制度,应在风险预防、合作与效能原则指引下,对化工行业法律法规进行"立改废",增强规范中的预防条款,为预防式社会性监管提供依据;平衡预防式社会性监管与技术创新之间的关系,将监管范围限定在化工行业生产、贮存、运输等环节的安全、健康、环境风险领域;建立风险监管职能清晰、纵向权力差异化配置、机构独立设置的预防式社会性监管体制;以信息公开、专家参与、监管影响评价程序增强预防式社会性监管的民主性、科学性与责任性;建立复合的预防式监管责任体系,保障监管的实效。

Traditional regulatory system is facing institutional failure due to the excessive risks generated by science and technology.In order to effectively resist risks and accomplish regulation tasks,it is essential to introduce preventive regulation into the traditional social regulation.The preventive social regulation system integrated with concepts such as risk prevention and cooperative regulation will not only support the government for fulfilling its risk regulation obligations,but also respond to realistic demands of government’s safety,health and environmental regulation in a risk society.Through investigating the chemical industry with risk characteristics,it is found that the risk exists widely across the whole process of production,storage and transportation,and is difficult to be detected and treated.In the meantime,there is insufficient social supervision and prevention in chemical industry,with the existing problems of inaccurate risk identification,unscientific assessment,untimely disposal,and unsmooth information exchange,etc.Therefore,to establish preventive social regulation system should amend or abolish the current laws and regulations for the chemical industry,enhance the prevention clauses based on regulations and provide the normative basis for preventive social regulation,under the guidance of the principles of risk prevention,cooperation and efficiency;find balance between social regulation and technological innovation and regulate the whole process of production,storage and transportation in the chemical industry to ensure safety and health and to mitigate environmental risks;establish a preventive social regulation system that covers specific risk regulation functions,differentiated power allocation and independent institutional structure;enhance the democracy,scientificity and responsibility of preventive social regulation by information disclosure and transparency,expert participation and regulatory impact assessment procedures;establish a comprehensive preventive regulatory responsibility system to ensure the effectiveness of regulation.