环评体制改革的央地逻辑——基于合法性与效率的二元视角  

Central-Local Relations in EIA Reform: The Dual Dimensions of Legality and Efficiency

作　　者：马允[1] Yun Ma

机构地区：[1]中国政法大学法学院

出　　处：《公共行政评论》2023年第1期29-47,197,共20页Journal of Public Administration

基　　金：中国政法大学青年教师学术创新团队支持计划“优化营商环境的行政法治保障:理论与实践”(20CXTD01);中国政法大学钱端升杰出学者支持计划,国家社会科学基金项目(21CFX063)。

摘　　要：早期环评改革中,以实现法制统一和矫正地方执行偏差为目标的央地逻辑无法解释“放管服”背景下环评改革的效率转向,基于政策实验的渐进式改革路径使得央地互动在传统“集权-分权”路径之外呈现差异化和选择性特征。理论上须寻求综合性框架以解释央地逻辑的转换,规范上须寻求央地关系的稳态结构,纾解改革与法治的内在张力。研究构建了“合法性-效率”二元维度的分析框架,着眼于环评“放管服”改革尤其是环评豁免制度的个案观察,引入政策创新的合法性依赖程度变量,对政策创新工具中的央地互动方式进行类型化。研究发现,合法性与效率维度在环评改革中呈现出制度上的共生叠加,环评改革演化为渐进交互的制度谱系。合法性依赖程度的差异是影响政策实验中央地互动的因素,也是中央对地方的政策试验进行选择性控制的重要工具,地方与中央博弈能力的差异影响到政策创新的认可和复制推广。效率导向的环评改革无论是在政策试验的改革路径抑或是具体的政策工具层面,均面临合法性约束困境,应从政策试验的准入评估、启动授权的制度化、全流程监督、央地权限划分稳态化、重申环评功能定位与价值位阶等方面予以纾解。By refining central-local relations in the environmental impact assessment(EIA)reform,it became possible to realize the unification of the legal system as prescribed in the Constitution and to rectify implementation gaps at the local level.This logic needs to be reconsidered as the nation turns toward efficiency through the“Reform of Government Functions”,which seeks to incrementally adopt policy experimentation.This study adopted a dual dimensional analytical framework of“Legality-Efficiency”to explore the transformation of the internal logic of central-local relations.Based on EIA reforms with special attention to the policy innovation of EIA exclusion,this paper classifies the types of central-local interactions per different policy innovations by using a matrix of variables,one of which is the degree of policy innovation s compatibility with law.The dual dimensions co-exist in the current EIA reform and tension between them has arisen.Legality is used by the central authorities to selectively control local policy experimentation.Discrepancies among localities that are part of the central-local game then influence the pattern of recognition and diffusion of policy innovation.To cope with the legality dilemma of policy-experiment-based EIA reform,this paper suggests that a compatibility test should be conducted before initiation of a policy experiment.Such a test should be coupled with institutionalization of the reform authorization system and supervision that extends through the entire process of the experiment.The central-local division of EIA approval power should be framed within a stabilized framework.The nature of social regulation of EIA should be distinguished,and the veto system prescribed in law should be emphasized during the reform.

关 键 词：环评改革 放管服 央地关系 合法性 效率 

分 类 号：D63[政治法律—政治学]