通过TRI数据库在美国30多年实践的分析,我们发现对于企业的环境污染,需要有多利益主体、多层次的公众参与,以形成公众的选择,达成一致的舆论,再进一步推动政策的出台。TRI数据库的存在使得从公民个人到立法机构都有了可以量化以确定风险的科学依据;同时,好的公共政策的出台需要科学知识与社会正义的结合,多层次的公众参与能够保障这一目标的实现。这一过程实质还是信息对称下的公众选择。[77]在各类公众参与过程中,认知风险一直是公众参与的主要目标,各类公众参与形式是实现这一目标的程序保障。企业的公众参与,对内是为了监测企业风险,对外是为了树立负责任的社会形象以获取更多的市场利润,对公众来说有了风险感知的目标客体;初级公众参与中公民个体或社区团体,为了主动争取风险信息双向流通的参与机会,是获取参与的前提;部分公众参与是通过大众传媒与专业民间团体,把风险的科学知识用大众化的语言传递给公众,其目的是为了让公众与政策制定者之间缩小知识沟,形成强大的舆论,为建立双向信息流通创造条件;充分公众参与是在保障前三种公众参与的前提下,实现体制内的权力去中心化,达到风险管控政策的科学化与社会正义性。这四个层次具有阶梯性与递进性的特征,彼此有不可或缺、各有各的功能。
在TRI数据库基础上多层公众参与的借鉴意义。我国现在还没有建立TRI数据库,目前对于企业环境污染最有影响力的监督形式是中央环保督察。从2016年开始的中央环保督察在我国环境保护过程中起到了重要的作用。前三批中央环保督察之后,初步立案处罚的企业15 586家,罚款额度7.75亿元,立案侦查案件1 154起,行政和刑事拘留人数为1 075人。然而,上述这些信息只有结果,具体信息从未对社会公开过。[78]权力监督及其制约理论为政府干预地方环境保护工作、全面开展中央环保督察提供了理论依据。同时,后工业社会理论认为环境污染这类负外部公共属性管理问题,是两级体制(即政府和企业)失灵所造成的,需要引入第三部门的参与管理与监督。[79]中央环保督察这种属于政府内部的权力监督,有学者认为这种权力制约的方式不可避免地形成一种拮抗效果,将会导致管理资源的内部消耗,也将会增加社会治理的成本,不利于我国环境公共利益的实现,[80]这还是没有逃过政府失灵的圈子。不过,中央环保督察在我国还是必要的,督查代表党中央国务院在管理上有权威性,是由监督企业—监督政府—监督地方党委建构的权力监督模式,[81]督查推动了地方政府治理环境的效率,这是基于我国国情对于环境保护重点工作的顶层设计不断细化的结果。同时,我国的环境保护应该有充分的多层面的公众参与,形成畅通的有效传播,包括政府、企业和各层次公众的多元主体。本研究这种基于TRI数据库基础上多层次的公众参与,对于推动解决我国企业污染的传播失灵具有一定的借鉴意义。
【注释】
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