论环境行政决策的调适模式及其法律控制

Learning-While-Doing Model of Environmental Administrative Decision-making and its Legal Control

环境行政决策制度对事前预测确定性的追求亟需系统性反思。现行环境行政决策制度采用“预测模式”,对风险认知持静态视角,期待行政机关的事前预测即可“一劳永逸”地解决问题,不重视对环境风险的后续调适,难以适应环境风险的不确定性、复杂性、变动性等特征。为提升环境行政决策的效能,需在动态视角下认识环境行政决策的的持续性与多阶段性,通过持续的学习和调适来改善事前预测结论与应对措施,构建环境行政决策的“调适模式”,明确适用情形、决策程序、决策内容等方面的核心构造。对调适型环境行政决策的法律控制需纳入对行政效能的考量,吸收调适型决策的非终局性特征,合理选择公众参与时机以促进理性交流,并妥当确定司法审查的受案范围与审查标准。

Environmental administrative decision-making’s pursuit of front-end prediction demands systematic reconsideration. Current environmental administrative decision-making law adopts a "front-end prediction" model. This model holds a static view of risks, expects agencies to completely solve problems by single-time prediction, and undervalues subsequent assessment of environmental risks. Therefore, it poorly adapts to the uncertain, complex and dynamic nature of environmental risks. In order to improve the effectiveness of decision-making, agencies should realize the multi-steps nature of environmental decision-making from a dynamic perspective, and thus adopts a "learning while doing" model with core structure of applicable circumstances, decision-making procedure, and decision-making content. Administrative law should integrate effectiveness concern into legal control by absorbing the non-finality nature of the "learning while doing" model, promoting meaningful public participation and rationally choosing participating stages, as well as reasonably defining the scope and standard of judicial review.