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構(gòu)建中國社區(qū)環(huán)境治理法制的進(jìn)路探討論文
摘要
社區(qū)環(huán)境治理，是環(huán)境保護(hù)的新形式、環(huán)境公眾參與的新思路和新方法。它是指社區(qū)居民、社區(qū)自治組織、政府、社會(huì)組織和企業(yè)等廣泛主體通過協(xié)商與合作等形式共同參與對社區(qū)及公共環(huán)境事務(wù)的管理。通過社區(qū)環(huán)境治理，能夠有效地保障憲法和法律中確立的居民自治權(quán)，以及公民的環(huán)境參與權(quán)、知情權(quán)和監(jiān)督權(quán)，實(shí)現(xiàn)環(huán)境保護(hù)目標(biāo)和社區(qū)建設(shè)目標(biāo)的雙贏。而社區(qū)環(huán)境治理法律制度，則是為實(shí)現(xiàn)這一模式的法治化而建立的一整套相互配合、相互關(guān)聯(lián)的法律規(guī)則。為準(zhǔn)確理解社區(qū)環(huán)境治理法律制度，首先需要準(zhǔn)確把握幾個(gè)相關(guān)概念。一是社區(qū)。社區(qū)原是社會(huì)學(xué)概念，而在現(xiàn)行法中社區(qū)主要分為城市社區(qū)與農(nóng)村社區(qū)。城市社區(qū)，是指經(jīng)過調(diào)整的城市居民委員會(huì)轄區(qū)。而農(nóng)村社區(qū)，一般是指與農(nóng)村村民委員會(huì)轄區(qū)相一致的行政村。而作為本文研究對象的社區(qū)，則通過對現(xiàn)行法的概括與抽象，將城市與農(nóng)村社區(qū)概念統(tǒng)一起來，這樣的視角有助于對社區(qū)環(huán)境治理進(jìn)行總體研究。二是治理。治理是指多元主體廣泛參與公共事務(wù)管理的形式，特別是善治，普遍成為當(dāng)代政府治理現(xiàn)代化改革的目標(biāo)。三是社區(qū)環(huán)境治理。社區(qū)環(huán)境治理是環(huán)境治理在社區(qū)層面上的實(shí)踐，強(qiáng)調(diào)了社區(qū)在其他相關(guān)主體的共同參與下，自主地對社區(qū)環(huán)境事務(wù)的治理。
對于法律這門講求“理由先于結(jié)論”的學(xué)科而言，任何法律制度在進(jìn)行構(gòu)建前均需要理論證成，說明其構(gòu)建的正當(dāng)性和理由。而社區(qū)環(huán)境治理法律制度，有著深刻的理論正當(dāng)性和現(xiàn)實(shí)需求：社區(qū)環(huán)境治理法律制度體現(xiàn)著法的價(jià)值中自由、正義、秩序和效率的價(jià)值追求，是其理論正當(dāng)性的來源；城鄉(xiāng)人居環(huán)境問題嚴(yán)峻、傳統(tǒng)政府管制模式失靈、環(huán)境公眾參與狀況不佳和社區(qū)環(huán)境治理法律制度供給不足，則是其現(xiàn)實(shí)需求所在。
構(gòu)建我國的社區(qū)環(huán)境治理法律制度，首先需要明確其基本模式和指導(dǎo)原則。總結(jié)社區(qū)治理的國際經(jīng)驗(yàn)，主要有三種模式，分別是社區(qū)自治型、政府主導(dǎo)型和政府與社區(qū)結(jié)合型。通過分析比較其中優(yōu)劣，并結(jié)合我國的實(shí)際，政府與社區(qū)結(jié)合型應(yīng)當(dāng)成為我國的選擇。而構(gòu)建我國社區(qū)環(huán)境治理法律制度的指導(dǎo)原則主要有：統(tǒng)籌規(guī)劃原則、社區(qū)自主原則、政府指導(dǎo)原則、公眾參與原則和硬法與軟法結(jié)合原則。
具體而言，社區(qū)環(huán)境治理法律制度的構(gòu)建策略應(yīng)當(dāng)是從參與治理的各個(gè)主體在治理中的角色出發(fā)，分別進(jìn)行相應(yīng)的制度設(shè)計(jì)。首先，政府是社區(qū)環(huán)境治理的支持者，應(yīng)主要從各方面為社區(qū)環(huán)境治理提供支持，如提供制度支持、財(cái)政支持、人力和智力支持等。其次，社區(qū)自治組織是社區(qū)環(huán)境治理中的核心角色，因此首要的任務(wù)是完善社區(qū)自治組織建設(shè)。同時(shí)，許多制度都有賴于社區(qū)自治組織的運(yùn)作，比如制定社區(qū)環(huán)境公約、設(shè)立專門的社區(qū)環(huán)境委員會(huì)、探索建立社區(qū)環(huán)境圓桌會(huì)議制度和推動(dòng)建設(shè)社區(qū)環(huán)境宣傳教育制度等。再次，社區(qū)居民是社區(qū)環(huán)境治理的主要行動(dòng)者，因此可以從居民在社區(qū)環(huán)境治理中享有的權(quán)利和承擔(dān)的義務(wù)角度進(jìn)行分析。居民在社區(qū)環(huán)境治理中，主要享有知情權(quán)、參與權(quán)、決策權(quán)和監(jiān)督權(quán)。而居民主要的義務(wù)則體現(xiàn)為不破壞環(huán)境的義務(wù)、生活垃圾處理的義務(wù)、低碳節(jié)儉的義務(wù)和參與環(huán)境治理的積極義務(wù)。復(fù)次，社會(huì)組織和其他社會(huì)力量是幫助社區(qū)環(huán)境治理實(shí)現(xiàn)的重要推力，為此，應(yīng)當(dāng)積極培育社區(qū)內(nèi)的社會(huì)組織，并形成社區(qū)內(nèi)外組織間的聯(lián)動(dòng)機(jī)制，幫助社區(qū)提升環(huán)境治理的能力。最后，社區(qū)是企業(yè)的利益相關(guān)者，因此企業(yè)應(yīng)履行對社區(qū)的環(huán)境責(zé)任。企業(yè)對社區(qū)最基本的環(huán)境責(zé)任是進(jìn)行環(huán)境信息公開。而除此之外，也要求企業(yè)積極地參與社區(qū)環(huán)境治理。最后，上述構(gòu)建策略應(yīng)當(dāng)通過法制化路徑落實(shí)到相應(yīng)的法律文本中，以使之穩(wěn)定化、制度化。
關(guān)鍵詞：環(huán)境治理，社區(qū)治理，環(huán)境公眾參與，法律制度建設(shè)
ABSTRACT
Community-based environmental governance is the new method ofenvironmental protection and the new access of public participation as well.
It means that residents, community, government, NGOs, enterprises worktogether by negotiating and collaborating to manage the publicenvironmental affairs in the community. By doing this, the autonomousright of residents provided in the Constitution and laws, and the right toparticipate in environmental affairs, the right to know and the right tosupervise will be fully achieved. The legal system of community-basedenvironmental governance is the combination of a series of rules makingsure the governance functions well and under the rule of law. Tounderstand this concept, some related concepts need to be explained. Firstone is “community”. The idea of community is originated from sociology,in the current law of China it means the prefecture of residents' committeein urban areas and the prefecture of villagers' committee in rural areas. Butin the text community is a united concept combined both urban areas andrural areas which would help the research. Another one is “governance”.
Governance means all the forces in society working together in solvingpublic affairs. Governance, especially good governance, is becoming thegoal of modernization reform for governments. The idea of governance hasspread widely in all the categories of public affairs such as environmentalgovernance and community governance. Community-based environmentalgovernance is the intersection of environmental governance andcommunity governance, which emphasize the autonomy of the communityand the public participation in dealing with the environmental affairs ofcommunity.
The legal system of community-based environmental governance hasboth the theoretical legitimacy and practical demands. For the theoreticalreason, the legal system of community-based environmental governanceindicates the four basic values of law, these are: liberty, justice, order andlaw. For the practical reason, there are four problems in China that calls forcommunity-based environmental governance, these are: the environmentalproblems in both urban and rural areas are becoming serious; Using“command and control” strategy by the government alone to solveenvironmental problems is proved to be failure; Public participation inenvironmental protection needs to improve; and the scarcity of rules forcommunity-based environmental governance to follow while the Partypolicy is promoting this idea.
To build a robust legal system, first we have to choose a suitable legalmode and certain general principles to follow. Worldwide speaking, thereare three typical modes for successful community governance: thecommunity independent mode, government guiding mode andgovernment-community collaborating mode. After comparison the pros andcons in these three modes and taking Chinese case into account, it is wiseto choose government-community collaborating mode. As for the generalprinciples, these are: overall planning, community independence,government guidance, public participation and the combination of “softlaw” and “hard law”.
The last but not least is the specific suggestions for how to build sucha legal system. Since governance means all the stakeholders workingtogether, this legal system must be a comprehensive one that making eachstakeholder plays their role to the full. First, for government, it should playsupporting role by making regulations and laws, providing financial andman-powered support. Second, for the autonomous organization ofcommunity which represents the community, the first task is to help itbecome more representative and effective, and some other institutions likedrafting bylaws on environmental protection in community, establishingthe environmental committee in community, holding the public roundtablemeetings and hearings, and promoting environmental education incommunity. Thirdly, as to the residents in community, it's important to setthe rights and duties. The residents have the right to know, the right toparticipate, the right to supervise and the right to claim in the process ofenvironmental governance in community. They also have duties, these are:not to pollute the environment, handle garbage properly, live in alow-carbon and environmental friendly way, and to participate in theenvironmental governance in community. Fourthly, organizations playsimportant role in environmental governance. Laws shall be made to nurturethe community-based organizations and build cooperative mechanismbetween NGOs, volunteers and community organizations. Finally, for theenterprises in community, they must take social responsibilities to thecommunity like environmental information disclosure and participation inthe environmental governance.Above all, legislation must play a supportiveand active role in making these suggestions effective.
KEY WORDS:Environmental Governance, Community Governance,Environmental Public Participation, Legal System Construction.
目錄
引言
一、選題背景與意義
二、研究現(xiàn)狀
三、主要研究內(nèi)容
四、研究方法
（一）文獻(xiàn)研究法
�。ǘ┍容^研究法
五、主要?jiǎng)?chuàng)新
第一章社區(qū)環(huán)境治理法律制度的基本范疇
一、社區(qū)
�。ㄒ唬┥鐣�(huì)學(xué)中社區(qū)的概念
�。ǘ┈F(xiàn)行法中社區(qū)的概念
�。ㄈ┍疚闹猩鐓^(qū)的概念
二、社區(qū)環(huán)境治理
（一）治理的概念
�。ǘ┉h(huán)境治理與社區(qū)治理
�。ㄈ┥鐓^(qū)環(huán)境治理的概念
三、社區(qū)環(huán)境治理法律制度
（一）社區(qū)環(huán)境治理法律制度的法律基礎(chǔ)
�。ǘ┥鐓^(qū)環(huán)境治理法律制度的主體
�。ㄈ┥鐓^(qū)環(huán)境治理法律制度的客體
第二章社區(qū)環(huán)境治理法律制度的理論證成
一、社區(qū)環(huán)境治理法律制度的正當(dāng)性分析
�。ㄒ唬┳杂蓛r(jià)值分析
�。ǘ┱x價(jià)值分析
�。ㄈ┲刃騼r(jià)值分析
（四）效率價(jià)值分析
二、社區(qū)環(huán)境治理法律制度的現(xiàn)實(shí)需求
（一）城鄉(xiāng)人居環(huán)境問題嚴(yán)峻
�。ǘ﹤鹘y(tǒng)政府管制模式失靈
�。ㄈ┉h(huán)境公眾參與狀況不佳
�。ㄋ模┥鐓^(qū)環(huán)境治理法律不足
第三章構(gòu)建我國社區(qū)環(huán)境治理法律制度的模式與原則
一、構(gòu)建我國社區(qū)環(huán)境治理法律制度的模式選擇
�。ㄒ唬┥鐓^(qū)自治模式
（二）政府主導(dǎo)模式
�。ㄈ┱c社區(qū)自治結(jié)合模式
（四）小結(jié)：我國的模式選擇
二、構(gòu)建我國社區(qū)環(huán)境治理法律制度的指導(dǎo)原則
�。ㄒ唬┙y(tǒng)籌規(guī)劃原則
�。ǘ┥鐓^(qū)自主原則
�。ㄈ┱龑�(dǎo)原則
�。ㄋ模┕妳⑴c原則
�。ㄎ澹┯卜ㄜ浄ㄏ嘟Y(jié)合原則
第四章構(gòu)建我國社區(qū)環(huán)境治理法律制度的策略建議
一、政府：提供支持
�。ㄒ唬┲贫戎С�
（二）財(cái)政支持
�。ㄈ┤肆椭橇χС�
二、社區(qū)自治組織：核心角色
�。ㄒ唬┩晟粕鐓^(qū)自治組織建設(shè)
�。ǘ┲贫ㄉ鐓^(qū)環(huán)境公約
�。ㄈ┙⑸鐓^(qū)環(huán)境委員會(huì)
�。ㄋ模┨剿魃鐓^(qū)環(huán)境圓桌會(huì)議制度
�。ㄎ澹┩苿�(dòng)社區(qū)環(huán)境宣傳教育
三、社區(qū)居民：主要行動(dòng)者
（一）社區(qū)居民享有的權(quán)利
�。ǘ┥鐓^(qū)居民承擔(dān)的義務(wù)
四、社會(huì)組織：內(nèi)外聯(lián)動(dòng)
�。ㄒ唬┡嘤鐓^(qū)內(nèi)組織發(fā)展
�。ǘ┙⑸鐓^(qū)內(nèi)外組織間的聯(lián)動(dòng)機(jī)制
五、企業(yè)：履行環(huán)境責(zé)任
�。ㄒ唬┫蛏鐓^(qū)履行環(huán)境信息公開的義務(wù)
（二）參與社區(qū)環(huán)境治理的義務(wù)
六、社區(qū)環(huán)境治理法律制度立法建議
結(jié)論
參考文獻(xiàn)
后記
致謝
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