知识型专家影响空气质量标准政策变迁的中美比较研究
|
摘要
专家治策在复杂的环境政策制定过程中尤为重要,在不同的政策阶段中,专家参与特征是否存在差异?本文运用比较案例研究方法,分析了近60年来中美知识型专家参与空气质量标准政策过程的模式及其对政策变迁的影响。研究发现,在两个国家中,直接咨询模式与迂回启迪模式均存在于政策变迁的各阶段中。在美国,两种参与模式基本均衡存在;而在中国,专家主要采用直接咨询模式参与政策过程,推动了内生政策学习。此外,中国空气质量标准政策变迁过程中,专家由单一成员组成转为多研究机构的广泛参与,但具有个体强群体弱的特征,专家政策参与的能力和自身角色认知仍有欠缺,参与路径和效果缺乏法律制度的保障。
Since the 1960s,the Chinese government has issued multiple versions of Air Quality Standards Policy and related policies,in which experts frequently participated. As an important role in the policy subsystem,experts are one of the important factors influencing the change of public policy,in which the characteristics and behavioral patterns of expert participation,including the size,manner and result are all worth thinking about.This paper uses the comparative case study method,summarizes and compares the evolution of Air Quality Standard Policy between China and the United States,and analyses the behavioral patterns of expert participation and its impact on the process of Air Quality Standard Policy changes to find out the differences between two countries,which will provide some theoretical supports for the effective expert participation in the field of environmental policy in China.It is found that the behavioral patterns of linear access and outside-in enlightenment exist in the two stages of policy change. However,there are also behavioral patterns of deprofessionalized campaign,and locked-out in each stage. Moreover,in the United States,the two patterns of linear access and outside-in enlightenment are basically balanced,while it is more stable to promote endogenous learning through the behavioral patterns of linear access to promote policy process in China.More generally,there are some similar effects brought about by expert participation on the process of Air Quality Standard Policy changes between two countries. However,the effect of expert participation in China has its own unique characteristics.First of all,expert participation is mainly based on the behavioral pattern of linear access,and it is different from the US where the behavioral pattern of outside-in enlightenment is the main one,which is inconsistent with previous research conclusions,the main reason is that Chinese policymakers pay more attention to the opinions of experts and stipulate the necessity of expert participation in relevant policies and laws. The behavioral pattern of linear access of expert participation can quickly and effectively influence policy-making and decision-making,however,under these circumstances,only a small range of experts can take effect,which leads to the result of more external experts lack effective ways or paths to participate in the policy process.Secondly,experts mainly promote endogenous policy learning and the transformation of secondary policy beliefs,which is particularly obvious in the first three stages of policy change,and only in the last stage,experts discussed and appealed for air pollution issues by publishing research results to the society,which showed the role of promoting social learning so as to promote the change of policy core belief system of policymakers.Thirdly,the composition types of expert participation tend to be diversified. With the democratization of policy concepts,more experts from non-governmental organizations joined in policy research. Along with the development of new media and social network,more experts participate in the policy process to respond to the requirement of scientific and democratic decision-making. Additionally,in the form of individuals,experts mostly play an important role in policy change in China,while American think tanks,as an important form of expert group,have a more profound and systematic impact on policy.The fourth point is that the ability of expert participation is still insufficient,and their role orientation is not clear. In the progress of Air Quality Standard Policy changes,the experts in China lacks the research on air quality standards with considering a more cutting-edge perspective and practical significance of long-term social development.Finally,the path and effect of expert participation lacks the guarantee of legal system,which caused that experts could not have a systematic and stable impact on environmental policy.This paper suggests that the government should continue promoting policy initiative change through encouraging the linear access of expert participation with forward-looking and sustained research,and constantly improve Air Quality Standards Policy and related policies so as to ensure long-term improvement of air quality. Meanwhile,experts need to fully understand the position and responsibilities of self-roles in environmental policy system,and actively explore effective strategies of policy participation.
Since the 1960s,the Chinese government has issued multiple versions of Air Quality Standards Policy and related policies,in which experts frequently participated. As an important role in the policy subsystem,experts are one of the important factors influencing the change of public policy,in which the characteristics and behavioral patterns of expert participation,including the size,manner and result are all worth thinking about.This paper uses the comparative case study method,summarizes and compares the evolution of Air Quality Standard Policy between China and the United States,and analyses the behavioral patterns of expert participation and its impact on the process of Air Quality Standard Policy changes to find out the differences between two countries,which will provide some theoretical supports for the effective expert participation in the field of environmental policy in China.It is found that the behavioral patterns of linear access and outside-in enlightenment exist in the two stages of policy change. However,there are also behavioral patterns of deprofessionalized campaign,and locked-out in each stage. Moreover,in the United States,the two patterns of linear access and outside-in enlightenment are basically balanced,while it is more stable to promote endogenous learning through the behavioral patterns of linear access to promote policy process in China.More generally,there are some similar effects brought about by expert participation on the process of Air Quality Standard Policy changes between two countries. However,the effect of expert participation in China has its own unique characteristics.First of all,expert participation is mainly based on the behavioral pattern of linear access,and it is different from the US where the behavioral pattern of outside-in enlightenment is the main one,which is inconsistent with previous research conclusions,the main reason is that Chinese policymakers pay more attention to the opinions of experts and stipulate the necessity of expert participation in relevant policies and laws. The behavioral pattern of linear access of expert participation can quickly and effectively influence policy-making and decision-making,however,under these circumstances,only a small range of experts can take effect,which leads to the result of more external experts lack effective ways or paths to participate in the policy process.Secondly,experts mainly promote endogenous policy learning and the transformation of secondary policy beliefs,which is particularly obvious in the first three stages of policy change,and only in the last stage,experts discussed and appealed for air pollution issues by publishing research results to the society,which showed the role of promoting social learning so as to promote the change of policy core belief system of policymakers.Thirdly,the composition types of expert participation tend to be diversified. With the democratization of policy concepts,more experts from non-governmental organizations joined in policy research. Along with the development of new media and social network,more experts participate in the policy process to respond to the requirement of scientific and democratic decision-making. Additionally,in the form of individuals,experts mostly play an important role in policy change in China,while American think tanks,as an important form of expert group,have a more profound and systematic impact on policy.The fourth point is that the ability of expert participation is still insufficient,and their role orientation is not clear. In the progress of Air Quality Standard Policy changes,the experts in China lacks the research on air quality standards with considering a more cutting-edge perspective and practical significance of long-term social development.Finally,the path and effect of expert participation lacks the guarantee of legal system,which caused that experts could not have a systematic and stable impact on environmental policy.This paper suggests that the government should continue promoting policy initiative change through encouraging the linear access of expert participation with forward-looking and sustained research,and constantly improve Air Quality Standards Policy and related policies so as to ensure long-term improvement of air quality. Meanwhile,experts need to fully understand the position and responsibilities of self-roles in environmental policy system,and actively explore effective strategies of policy participation.
引文
[1]朱旭峰.中国社会政策变迁中的专家参与模式研究[J].社会学研究,2011(2):01-27.Zhu Xufeng.Behavioral patterns of expert participation in social policy changes in China[J].Sociological Studies,2011(2):01-27.
[2]Sabatier P.A.,Jenkins-Smith C.H.Policy change[M].Boulder,CO:Westview Press,1993.
[3]Sabatier P.A.An advocacy coalition framework of policy change and the role of policy-oriented learning therein[J].Policy Sciences,1988,21(2-3):129-168.
[4]Weible C.M.,Sabatier P.A.A quarter century of the advocacy coalition framework:An introduction to the special issue[J],Policy Studies Journal,2011,39(3):349-360.
[5]朱春奎,严敏,曲洁.倡议联盟框架理论研究进展与展望[J].复旦公共行政评论,2012(1):186-215.Zhu Chunkui,Yan Min,Qu Jie.The current progress and research prospects of advocacy coalition framework[J].Fudan Public Administration Review,2012(1):186-215.
[6]迈克尔·豪利特,M.拉米什.庞诗等译.《公共政策研究:政策循环与政策子系统》[M].北京:生活·读书·新知三联书店,2006.Michael Howlett,M.Ramesh.Studying public policy:Policy cycle and policy subsystem[M].Pang Shi et al translate,Bei Jing:SDX Joint Publishing Company,2006.
[7]干咏昕.政策学习:理解政策变迁的新视角[J].东岳论丛,2010,31(9):153-156.Yu Yongxin.Policy learning:A new perspective to understand policy change[J].Dongyue Tribune,2010,31(9):153-156.
[8]王春城,柏维春.政策经纪人在政策变迁中的作用与机理[J].行政论坛,2014(2):40-45.Wang Chuncheng,Bai Weichun.The role and mechanism of policy brokers in policy change[J].Administrative Tribune,2014(2):40-45.
[9]朱旭峰.政策变迁中的专家参与[M].北京:中国人民大学出版社,2012.Zhu Xufeng.Expert participation in social policy changes[M].Beijing:China Renmin University Press,2012.
[10]Zhu Xufeng.Policy change and expert involvement in China[J].Public Administration,2013,91(2):281-302.
[11]郝亮,王毅,苏利阳,秦海波.基于倡导联盟视角的中国大气污染防治政策演变机理分析[J].中国地质大学学报(社会科学版),2016,16(1):34-43.Hao Liang,Wang Yi,Su Liyang,Qin Haibo.The revolution mechanism of China’s Air Pollution Control Policy based on advocacy coalition perspective[J].Journal of China University of Geosciences(Social Sciences Edition),2016,16(1):34-43.
[12]冯贵霞.大气污染防治政策变迁与解释框架构建---基于政策网络的视角[J].中国行政管理,2014(9):16-20.Feng Guixia.Framework construction for the air pollution prevention and control policy change and interpretation:From a policy network perspective[J].Chinese Public Administration,2014(9):16-20.
[13]江梅,张国宁,张明慧,邹兰,魏玉霞,任春.国家大气污染物排放标准体系研究[J].环境科学,2012,33(12):4417-4421.Jiang Mei,Zhang Guoning,Zhang Minghui,Zou Lan,Wei Yuxia,Ren Chun.Study on emission standard system of air pollutants[J].Environmental Science,2012,33(12):4417-4421.
[14]邵强.我国《工业企业设计卫生标准》制定与实施历史沿革概略[J].中国卫生工程学,2000,9(1):04-05.Shao Qiang.The history summary on formulation and implementation of China’s hygienic standards for design of industrial enterprises[J].Chinese Journal of Public Health Engineering,2000,9(1):04-05.
[15]国家环境保护总局.国家环境保护总局关于发布《环境空气质量标准》(GB3095-1996)修改单的通知环发[2000]1号[J].中国环保产业,2000(1):08.SEPA.Notice on the release of amendment order of national ambient air quality standards(GB3095-1996).Huan fa[2000].No1[J].China Environmental Protection Industry,2000(1):08.
[16]Chen Wei,Yan Lei.Seasonal variations of atmospheric pollution and air quality in Beijing[J].Atmosphere,2015,6(11):1753-1770.
[17]赵立建.从国内到国外-细颗粒物的两种“境遇”[J].环境保护,2011(16):22-24.Zhao Lijian.Two kinds of"Circumstances"from domestic to foreign of fine particulate matter[J].Environmental Protection,2011(16):22-24.
[18]张雪.转型期政府环境信息公开动力机制论析---以“PM2.5监测入国标”事件为例[J].城市发展研究,2012,19(9):61-67.Zhang Xue.The analysis of power mechanism about government environmental information open:The event of"PM2.5"monitoring were included in the national standard as an example[J].Urban Development Studies,2012,19(9):61-67.
[19]张海柱.环境政策论争的话语分析---以PM2.5争议与环境空气质量标准修订为例[J].太平洋学报,2012,20(6):62-70.Zhang Haizhu.The discourse analysis of environmental policy debate-Taking pm2.5 debate and the amendment of ambient air quality standard as a case[J].Pacific Journal,2012,20(6):62-70.
[20]Nash R.F.The rights of nature:A history of environmental ethics[M].Wisconsin:Wisconsin University Press,1996.
[21]Blair R.D.Problems of pollution standards-clean air act of1970[J].Land Economics,1973,49(3):260-268.
[22]羽仪.20世纪60~70年代美国环保运动史述评[J].湖南社会科学,2009(1):177-180.Yu Yi.Commentary on the history of environmental movement in the 60-70s of the 20th century in America[J].Social Sciences in Hunan,2009(1):177-180.
[23]Clark R.The national environmental policy act and the role of the president's council on environmental quality[J].Environmental Professional,1993,15(1):04.
[24]Laden F.,Schwartz J.Reduction in fine particulate air pollution and mortality-extended follow-up of the harvard six cities study[J].American Journal of Respiratory and Critical Care Medicine,2006,173(6):667-672.
[25]于文轩.美国能源安全立法及其对我国的借鉴意义[J].中国政法大学学报,2011(6):119-129.Yu Wenxuan.The legislation of American energy safety and its quotable significance to China[J].Journal of CUPL,2011(6):119-129.
[26]陶品竹.城市空气污染治理的美国立法经验:1943-2014[J].城市发展研究,2015(4):09-13.Tao Pinzhu.American legislation experience of the management of city air pollution[J].Urban Development Studies,2015(4):09-13.
[27]全国人民代表大会关于修改《中华人民共和国立法法》的决定[R].中华人民共和国全国人民代表大会常务委员会公报,2015,02.Decision of the National People's Congress on Amending the Legislation Law of the People's Republic of China[R].Bulletin of the Standing Committee of the National People's Congress of the People's Republic of China,2015,02.
[2]Sabatier P.A.,Jenkins-Smith C.H.Policy change[M].Boulder,CO:Westview Press,1993.
[3]Sabatier P.A.An advocacy coalition framework of policy change and the role of policy-oriented learning therein[J].Policy Sciences,1988,21(2-3):129-168.
[4]Weible C.M.,Sabatier P.A.A quarter century of the advocacy coalition framework:An introduction to the special issue[J],Policy Studies Journal,2011,39(3):349-360.
[5]朱春奎,严敏,曲洁.倡议联盟框架理论研究进展与展望[J].复旦公共行政评论,2012(1):186-215.Zhu Chunkui,Yan Min,Qu Jie.The current progress and research prospects of advocacy coalition framework[J].Fudan Public Administration Review,2012(1):186-215.
[6]迈克尔·豪利特,M.拉米什.庞诗等译.《公共政策研究:政策循环与政策子系统》[M].北京:生活·读书·新知三联书店,2006.Michael Howlett,M.Ramesh.Studying public policy:Policy cycle and policy subsystem[M].Pang Shi et al translate,Bei Jing:SDX Joint Publishing Company,2006.
[7]干咏昕.政策学习:理解政策变迁的新视角[J].东岳论丛,2010,31(9):153-156.Yu Yongxin.Policy learning:A new perspective to understand policy change[J].Dongyue Tribune,2010,31(9):153-156.
[8]王春城,柏维春.政策经纪人在政策变迁中的作用与机理[J].行政论坛,2014(2):40-45.Wang Chuncheng,Bai Weichun.The role and mechanism of policy brokers in policy change[J].Administrative Tribune,2014(2):40-45.
[9]朱旭峰.政策变迁中的专家参与[M].北京:中国人民大学出版社,2012.Zhu Xufeng.Expert participation in social policy changes[M].Beijing:China Renmin University Press,2012.
[10]Zhu Xufeng.Policy change and expert involvement in China[J].Public Administration,2013,91(2):281-302.
[11]郝亮,王毅,苏利阳,秦海波.基于倡导联盟视角的中国大气污染防治政策演变机理分析[J].中国地质大学学报(社会科学版),2016,16(1):34-43.Hao Liang,Wang Yi,Su Liyang,Qin Haibo.The revolution mechanism of China’s Air Pollution Control Policy based on advocacy coalition perspective[J].Journal of China University of Geosciences(Social Sciences Edition),2016,16(1):34-43.
[12]冯贵霞.大气污染防治政策变迁与解释框架构建---基于政策网络的视角[J].中国行政管理,2014(9):16-20.Feng Guixia.Framework construction for the air pollution prevention and control policy change and interpretation:From a policy network perspective[J].Chinese Public Administration,2014(9):16-20.
[13]江梅,张国宁,张明慧,邹兰,魏玉霞,任春.国家大气污染物排放标准体系研究[J].环境科学,2012,33(12):4417-4421.Jiang Mei,Zhang Guoning,Zhang Minghui,Zou Lan,Wei Yuxia,Ren Chun.Study on emission standard system of air pollutants[J].Environmental Science,2012,33(12):4417-4421.
[14]邵强.我国《工业企业设计卫生标准》制定与实施历史沿革概略[J].中国卫生工程学,2000,9(1):04-05.Shao Qiang.The history summary on formulation and implementation of China’s hygienic standards for design of industrial enterprises[J].Chinese Journal of Public Health Engineering,2000,9(1):04-05.
[15]国家环境保护总局.国家环境保护总局关于发布《环境空气质量标准》(GB3095-1996)修改单的通知环发[2000]1号[J].中国环保产业,2000(1):08.SEPA.Notice on the release of amendment order of national ambient air quality standards(GB3095-1996).Huan fa[2000].No1[J].China Environmental Protection Industry,2000(1):08.
[16]Chen Wei,Yan Lei.Seasonal variations of atmospheric pollution and air quality in Beijing[J].Atmosphere,2015,6(11):1753-1770.
[17]赵立建.从国内到国外-细颗粒物的两种“境遇”[J].环境保护,2011(16):22-24.Zhao Lijian.Two kinds of"Circumstances"from domestic to foreign of fine particulate matter[J].Environmental Protection,2011(16):22-24.
[18]张雪.转型期政府环境信息公开动力机制论析---以“PM2.5监测入国标”事件为例[J].城市发展研究,2012,19(9):61-67.Zhang Xue.The analysis of power mechanism about government environmental information open:The event of"PM2.5"monitoring were included in the national standard as an example[J].Urban Development Studies,2012,19(9):61-67.
[19]张海柱.环境政策论争的话语分析---以PM2.5争议与环境空气质量标准修订为例[J].太平洋学报,2012,20(6):62-70.Zhang Haizhu.The discourse analysis of environmental policy debate-Taking pm2.5 debate and the amendment of ambient air quality standard as a case[J].Pacific Journal,2012,20(6):62-70.
[20]Nash R.F.The rights of nature:A history of environmental ethics[M].Wisconsin:Wisconsin University Press,1996.
[21]Blair R.D.Problems of pollution standards-clean air act of1970[J].Land Economics,1973,49(3):260-268.
[22]羽仪.20世纪60~70年代美国环保运动史述评[J].湖南社会科学,2009(1):177-180.Yu Yi.Commentary on the history of environmental movement in the 60-70s of the 20th century in America[J].Social Sciences in Hunan,2009(1):177-180.
[23]Clark R.The national environmental policy act and the role of the president's council on environmental quality[J].Environmental Professional,1993,15(1):04.
[24]Laden F.,Schwartz J.Reduction in fine particulate air pollution and mortality-extended follow-up of the harvard six cities study[J].American Journal of Respiratory and Critical Care Medicine,2006,173(6):667-672.
[25]于文轩.美国能源安全立法及其对我国的借鉴意义[J].中国政法大学学报,2011(6):119-129.Yu Wenxuan.The legislation of American energy safety and its quotable significance to China[J].Journal of CUPL,2011(6):119-129.
[26]陶品竹.城市空气污染治理的美国立法经验:1943-2014[J].城市发展研究,2015(4):09-13.Tao Pinzhu.American legislation experience of the management of city air pollution[J].Urban Development Studies,2015(4):09-13.
[27]全国人民代表大会关于修改《中华人民共和国立法法》的决定[R].中华人民共和国全国人民代表大会常务委员会公报,2015,02.Decision of the National People's Congress on Amending the Legislation Law of the People's Republic of China[R].Bulletin of the Standing Committee of the National People's Congress of the People's Republic of China,2015,02.