论环境公共决策中风险沟通的法律实现——以预防型环境群体性事件为视角  

Legal realization of risk communication during the environmental public decision-making

作　　者：郭红欣[1] 

机构地区：[1]中南财经政法大学法学院,湖北武汉430073

出　　处：《中国人口·资源与环境》2016年第6期100-106,共7页China Population,Resources and Environment

基　　金：教育部人文社科青年基金项目"环境群体性事件中的权利表达与实现"(批准号:13YJC820027)

摘　　要：当前我国环境群体性事件呈高发态势。根据引发事件事实状态的不同可将其分为事前预防型环境群体性事件和事后救济型环境群体性事件。预防型环境群体性事件中公众所抵制的是有关环境风险的决策结果,实质上是在主张环境公共决策过程中认知风险的权利。着眼于预防型环境群体性事件所针对的环境公共决策过程,主要运用理论分析、规范分析、比较分析的方法,从行政决策权的行使与公众参与权利的实现入手,探究环境公共决策无法取得实质合法性的根源,寻求化解之法治路径。当前环境公共决策在结构和程序上呈现出封闭性,与决策结果具有直接利害关系的公众被排除在外,其认知风险的权利得不到有效实现,风险沟通不畅导致社会可接受的风险共识不能形成,环境公共决策无法取得实质合法性,引发预防型环境群体性事件增多。由于环境风险的不确定性特征,环境公共决策中专家的理性地位被动摇,公众参与环境决策的诉求更为强烈,其对风险的认知直接决定了对最终决策结果的认可和接受程度,政府无法独占风险决策地位。在社会层面形成具体风险认知的共识以便决策结果获得普遍的认同和接受成为环境公共决策取得实质合法性的必要条件。化解预防型环境群体性事件,需要在环境公共决策过程中进行有效的风险沟通。为此,环境法应当将公众作为环境决策的合作者,要求决策者主动、全面公开决策所依据的事实和理由,对公众意见给予及时充分的回应,寻求其理解和支持;实现环境信息公开的风险沟通功能;通过程序性的设计促进风险沟通的实现,保障公众参与的有效性。当前有关立法已反映出对风险沟通的重视,但只是萌芽。China witnessed a sharp increase of mass protests against environmental pollution. These protests may be classified into two categories： those seeking remedies for actual damages and those preventing perceived damages. The goal of preventative mass protests against perceived pollution is to prevent the decision-making results about environmental risks, but the more important underlying reason for such protests is to realize the right of perceiving environmental risks in the governmental decision-making process. This paper studies environmental public decision-making processes with the methods of doctrinal analysis, normative analysis, and comparative analysis. It starts with the decision-making powers of administrative agencies and the participation rights of the public in environmental public decision-making processes, then explores the sources for the inability to reach substantive legitimacy, and finally searches for the ways to reach substantive legitimacy. Currently, the process and structure of environmental public decision-making are closed, the public having direct interest to the result are excluded, and the public＇ s right of perceiving risk cannot be effectively exercised. The lack of effective risk communication leads to the lack of substantive legitimacy and the increase of preventative mass protests against perceived pollution. Because of the uncertainty of environmental risks, the experts＇ status as the rational representatives has been shaken and the public make a stronger claim to participate in the environmental decision-making process. The public＇ s perception of environmental risks determines their degree of acceptance of the final decisions and the government cannot keep the exclusive role in risk decision-making. Effective risk communication in the environmental decision-making process is necessary to reduce or eliminative preventative mass protests against perceived pollution. Therefore, the environmental law needs to develop in three parts. The first is to treat the public as coope

关 键 词：环境群体性事件 环境公共决策 风险沟通 环境知情权 

分 类 号：D912.6[政治法律—环境与资源保护法学]