论流域环境风险治理模式转型

On the model transformation of river basin environmental risk management

流域环境具有典型的复杂性与整体性特征,是风险治理的重要场域。我国传统流域环境风险治理模式面临碎片化管制困局,具有行政一元规制弊端,缺少流域风险沟通,尚未在多元规制主体间形成治理合力,无法完全应对流域环境风险挑战。流域环境风险治理模式转型,须在立法、执法和司法多个层面发挥公私主体合力,运用多元规制工具对流域环境风险进行预防治理。这一转型符合流域整体治理的现实需求,有较为充足的宪法及环境法律支撑,契合合作治理、流域共同治理等现代治理理论。在治理模式转型过程中,应围绕公私部门间以及公部门内部两个维度形塑流域环境风险治理结构,系统提升流域公共治理的民主性与有效性,努力将传统的分割、管控、形式参与型的控制路线,转变为整体、预防、实质参与型的公私协力模式。

Watershed environment has typical characteristics of complexity and integrity,which is an important field of risk management.China's traditional river basin environmental risk governance model is facing the dilemma of fragmented regulation,which has the disadvantages of administrative unitary regulation,lacking river basin risk communication,and has not formed a governance joint force among multiple regulatory subjects,so it cannot fully meet the challenges of river basin environmental risk.The transformation of watershed environmental risk management model must give full play to the joint efforts of public and private subjects at the levels of legislation,law enforcement and justice,and use multiple regulatory tools to prevent and manage watershed environmental risks.This transformation is in line with the practical needs of the overall governance of the river basin,has sufficient constitutional and environmental legal support,and is in line with modern governance theories such as cooperative governance and common governance of the river basin.In the process of governance model transformation,the basin environmental risk governance structure should center around the two dimensions between the public and private sectors and within the public sector,systematically improve the democracy and effectiveness of basin public governance,and transform the traditional control route of division,control and formal participation into a public-private cooperation model of overall,prevention and substantive participation.