Assessing the Institutional Effectiveness of State Environmental Agencies in Turkey

Improving the performance of the state environmental agencies (SEAs) necessitates an effective institutionalization of governmental environmental management functions. There are examples of successful and unsuccessful SEAs in several parts of the world. Analysis and assessment of these cases can deliver useful insights for institution builders. The objective of this article is the assessment of the institutional effectiveness of the SEAs in Turkey through the perceptions of the experts using the Delphi Technique. In this regard, a checklist is developed including 16 criteria and 123 subcriteria to measure the institutional effectiveness of the SEAs. Twenty-eight national and international experts have formed a Delphi panel and evaluated the national and local conditions. Results, based on the perceptions of the experts, indicate that the overall effectiveness of the SEAs is far less than satisfactory. Negative consensus has been reached over the effectiveness of 13 of the16 criteria and 95 of the123 subcriteria; however, no consensus has been achieved over the remainder of the parameters. The survey has also proven that the Delphi Technique can be effectively used for that purpose. Utilization of the checklist method is also useful in diagnosing the problematic components of the SEAs. It is recommended that this approach be used in similar cases elsewhere.     

页岩气开发对生态环境影响评价模型

针对页岩气特殊的开发方式及环评难度比常规气大的特点,运用"压力-状态-响应"框架模型,建立了页岩气开发对生态环境影响的评价指标体系。引入曲线投影的方式,并将投影寻踪方法和动态聚类方法相结合,提出了曲线投影寻踪动态聚类的定量评价方法;基于样本各指标的曲线投影和动态聚类方法寻找最佳投影方向,并建立相应的生态环境影响评价优化模型。结合全局最优经验指导和信息素交流,采用改进的蚁群算法对优化模型进行求解。该算法维持蚁群的多样性,且收敛性较好,同时也避免出现局部最优。对四川省威远页岩气区块进行了实例分析,结果表明:2010年、2011年和2014年的环评属于差类(4级),2012年和2013年的环评属于中类(3级),其中植被覆盖率、空气质量优良率、地表水质达标率、废水排放量、公众对环境的满意度、二氧化硫排放量和废水排放量达标率等指标对生态环境评价的影响较大。在页岩气开发初期,由于开发技术落后,再加上环保投资不高,环保意识不强,造成生态环境问题较为严重。随着学习借鉴美国的经验,及页岩气的开发技术进一步提高,加上国家对生态环境保护的重视,威远页岩气区块生态环境恶化得到有效的遏制。但开发时间越长,开采难度越大,将会产生更多更大的生态环境问题。分析结果与威远页岩气开发区域的实际情况相符,为页岩气气田生态环境影响评价奠定了科学基础。投影寻踪动态聚类方法具有无需设定参数、操作简单、客观等优点,是页岩气开发对生态环境影响评价的一种新方法。     

仙女湖富营养化特征与水环境容量核算

以典型的亚热带大型水库——江西省仙女湖为例,于2011~2013年季节性监测了仙女湖水体理化指标。采用综合营养状态指数法对其富营养化状态进行了评价,并采用沃伦威德尔模型(Vollenweider)和狄龙模型(Dillon)计算了COD、NH₃-N、TN和TP的水环境容量。结果表明:仙女湖水质总体处于地表水Ⅱ类~Ⅲ类标准,TN 0.32~0.91 mg/L、平均0.59 mg/L,NH₃-N 0.012~0.59 mg/L、平均0.31 mg/L,TP 0.017~0.080 mg/L、平均0.028 mg/L,COD_Mn 1.61~5.59 mg/L、平均2.85 mg/L,Chl-a 0.37~0.95 μg/L、平均0.56 μg/L。从湖区上游到下游,各指标尤其是总氮、总磷、透明度和氨氮呈现明显的趋优变化特征,除TP出现Ⅲ类水质外,其余指标多年持续处于Ⅱ类水质状态;从单因子状态指数来看,采用透明度评价的营养状态最高,大部分湖区持续处于轻度富营养状态;TN和TP评价的营养状态次之,处于中营养水平。仙女湖COD、NH₃-N、TN和TP水环境容量分别为21 208.0、3 528.8、4 991.2和248.1 t/a,分别剩余容量比率56.88%、68.25%、62.89%和13.67%,影响仙女湖水环境容量最突出的环境因子为TP。同时,基于对水环境容量影响因素的分析,最后提出了提高仙女湖区水环境容量的建设性方案。     

论中国环境预警制度的法治化--以行政权力的规制为核心

环境预警制度蕴含了一项使行政权力合法扩张的"对应性架构",即预警级别与"强制型"或"限制型"措施之间的充分必要关系。在制度运行过程当中,环境行政权力却出现了"选择性失语"和"运动式肆意"的问题,具体表现为:一是预警级别发布时的"隐匿"与"从轻",从而对公民健康权益保护不足;二是预警状态下环境行政权力的扩张过度,使得对个人自由与企业经济自由侵害过度。由于环境治理领域"被害人-加害人"二元对立关系的模糊化、趋同化甚至同一化,传统公法学体系中的权力制约理论无法对预警状态下多样化和多层次性的行政权力进行有效地规制。那么,便有必要对现有的环境预警制度进行修正与纠偏。因此,可以从"对应性架构"的载体及其前后两端入手,对环境预警制度进行法治化建构。具体而言,对环境预警的载体"应急预案"进行形式改造,提高环境应急预案的规范层级,完善环境应急预案制定、修改等程序性规定;明确不同预警级别设定的规范层级,将作为被宪法所保护的客观利益——生态环境利益与经济利益的边界——通过"前端"预警标准予以划分;对预警状态下行政权力的"外部"制约程序予以完善。基于预警级别标准体系的划分,可以通过司法程序对"后端"环境应急预案进行"附带性审查",同时,赋予私主体直接针对预警状态下具有"外化"法效力的内部行政行为提起行政诉讼的诉权。     

A radical public administration? Green radicalism and policy influence among local environmental officials in Sweden

Green radicalism among local environmental officials in Sweden is examined with the aims of theoretically elaborating on different dimensions of Green radicalism in the context of public administration, exploring the dimensionality of Green radicalism among officials, and examining the extent to which Green radicalism is associated with policy influence. Three types of Green radicalism are identified: Green ethics, Green institutional change, and Green activism. Survey data (N = 701) show that the three theoretical dimensions are present among officials, and that there is no negative association between radicalism and influence. It is primarily officials with Green activism beliefs who perceive themselves as able to influence policy. These findings suggest a need for more nuanced understanding of and further studies into the role of public administration in the quest for more radical Green reforms.     

Simulative governance: on the collaborative narrative of civil society participation in the CDM stakeholder framework

The Kyoto Protocol’s Clean Development Mechanism (CDM) is often cited as an exemplar of new, hybrid forms of global environmental governance operating at the public–private interface. Practically, enacting this arrangement involves a wide range of non-state actors. This broad involvement is here assumed to mark a shift towards more polycentric and networked modes of governance in which agents collaborate as ‘stakeholders’ in the process of consensual rule-setting and implementation. Using post-political critique, the depoliticising effects of the stakeholder framework on civil society actors are interrogated, using formal and informal participation opportunities to raise concerns regarding specific CDM projects. The analysis suggests that the CDM’s collaborative narrative of stakeholding structurally fails to stimulate public (re)engagement and is, instead, a prime example of simulative governance that struggles to achieve the simultaneity of two incompatibilities: the participatory revolution and the post-political turn.     

Welfare states and environmental states: a comparative analysis

A framework is presented for thinking about state intervention in developed capitalist economies in two domains: social policy and environmental policy (and, within that, climate-change policy). Five drivers of welfare state development are identified, the ‘five Is’ of Industrialisation: Interests, Institutions, Ideas/Ideologies, and International Influences. Research applying this framework to the postwar development of welfare states in the OECD is summarised, distinguishing two periods: up to 1980, and from 1980 to 2008. How far this framework can contribute to understanding the rise and differential patterns of environmental governance and intervention across advanced capitalist states since 1970 is explored, before briefly comparing and contrasting the determinants of welfare states and environmental states, identifying common drivers in both domains and regime-specific drivers in each. The same framework is then applied to developments since 2008 and into the near future, sketching two potential configurations and speculating on the conditions for closer, more integrated ‘eco-welfare states’.     

环境分权、市场分割与碳排放

中国有着庞大的环境管理队伍以及巨大的国内市场,科学的环境管理制度以及高度一体化的国内市场将深刻改变碳排放格局,然而,已有研究对于这些影响碳排放的体制性因素既缺乏足够的理论分析也缺乏实证检验。有鉴于此,本文首先分析了环境分权和市场分割影响碳排放的理论机理,并提出了三个理论假设,进一步地,本文以环境管理人员在不同层级政府的配置衡量环境分权度,以相对价格法衡量市场分割程度,基于1995-2012年的省际面板数据,从实证层面检验了环境分权和市场分割对碳排放的影响效应。结果显示:环境分权和市场分割都显著地加剧了碳排放,原因在于分权的环境管理体制安排扭曲了激励,无法对碳排放形成真实有效的约束,而市场分割则恶化了碳排放在区域间的配置效率。同时,环境分权与市场分割对碳排放的共同影响作用上存在互补效应,即环境分权程度越高,市场分割对碳排放的负面影响效应越大,反之,市场分割程度越高,环境分权对碳排放的负面影响效应也越大。这主要是由于环境分权与市场分割是地方政府一对互补的策略行为,在环境分权较高的地区,地方政府进行市场分割的能力越强,而在市场分割较高的地区,地方政府争取环境事务管理权的动力越强。因此,在既定的碳排放约束下,中央政府一方面需要适度集中环境事务管理权限,进一步优化环境事务管理机构设置以及人员队伍在不同层级政府间的配置,提高对碳排放的管控效率,另一方面需要打通省际壁垒,加快区域市场一体化建设,优化碳排放的区域配置,提高碳排放效率。     

双重外部性约束下中国资源型企业绩效研究

中国资源型产业的可持续发展受到代际外部性与环境外部性的双重制约,却长期存在过度进入导致的过度开采,加剧了资源型企业的产能过剩与配置扭曲,但与此相关的"结构-行为-绩效"关系研究尚未将外部性纳入考量。本文引入双重外部性,构建了"SCP-2E"模型,并基于80家资源开采上市公司2011-2014年的面板数据,首先运用使用者成本法和条件估值法分别估算了代际外部性和环境外部性,然后将它们作为企业行为的因变量和影响绩效的自变量分别纳入资源型企业的SCP-2E模型中,同时考虑双重外部性下市场结构、所有权性质等因素对绩效的影响。结果发现,中国资源型产业有着明显的周期性特征,而2011年以来资源型企业的兼并重组只是单纯扩大了企业规模,而没有切实提高企业效率;进一步结合企业规模和所有权性质的相关性来看,大型企业多以国有企业为主,由此说明企业规模扩大、绩效却显著降低的原因在很大程度是由于国有企业的低效率造成的;另外,目前企业绩效的提高,主要还是依赖于地区经济增长的拉动,但在用电量增速较快的地区,也伴随着较大的环境外部性损失,暂时没有受到资源枯竭的约束。基于以上结论,本文认为,监管部门应加强资源开采权的审查,提高资源型企业的进入门槛和技术标准,适当鼓励企业在不增加生产投资和规模的前提下,通过技术进步和劳动效率的提高提升绩效,而国有企业改革力度重点应放在解决大型国企的低效率问题上。政府应该权衡经济增长与代际和环境负外部性,在保证能源、资源安全的前提下,鼓励和扩大可耗竭资源的进口,逐步建立国家和企业的战略资源储备制度。     

Characterising the landscape of state environmental review policies and procedures in the United States: a national assessment

Following the intent of the National Environmental Policy Act of 1969, many states have adopted policies and procedures directing state agencies and local government units to evaluate the potential environmental impacts of development projects prior to their undertaking. In contrast to a rich literature on federal requirements, current understanding of state environmental review is narrowly focused and outdated. This paper seeks to provide information on the landscape of state environmental review policy frameworks. The paper identifies 37 states with formal environmental review requirements through a document review of state statutes, administrative rules and agency-prepared materials, and confirms this finding through a survey of state administrators. A two-tier classification is used to distinguish states based on the approach taken to address environmental review needs and the scope and depth of relevant policies and procedures implemented. This paper also provides a discussion of policy and programme attributes that may contribute to effective practice, and of the potential for adopting relevant legislation in states where environmental review is currently lacking.