基于绩效评估的战略环境评价体系研究
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摘要
一项合理的战略方案,其实施效果应当以环境、经济、社会综合效益最佳,促进可持续性发展。当前,国内外普遍采取的战略决策往往人为地将经济因素、社会因素与环境因素相分离,对于发展效果以及可持续发展能力产生着重大的负面影响。1992年6月巴西的里约热内卢联合国环发大会上,将政策、计划和战略规划进行环境影响评价的内容写进了大会签署的《21世纪议程》
战略环境评价(Strategic Environmental Assessment,简称SEA),是环境影响评价在战略层次上(即法律、政策、计划、规划)的应用,它是对一项战略,具体包括法律、政策、计划、规划,以及战略替代方案的环境影响进行正式、系统和综合的评价过程。它通过对战略引发的社会经济活动的环境影响进行分析评价,提出相应的环境保护对策及战略调整建议,从决策源头控制环境问题的产生,促进社会经济环境系统的可持续发展。目前,SEA尚不完善,尤其是受多种因素制约,SEA制度存在缺陷,在SEA实施过程中面临诸多困难。要提高SEA有效性,就要对关键制度要素和实施过程进行修改及重新设计,以达到机制优化和提高SEA有效性,该研究领域已成为国际上研究与关注的热点。
本论文基于当前国内外SEA研究回顾和展望的分析,构建了SEA绩效评估分析框架体系,该分析框架是一种普适性的分析框架,该分析框架构建的目的是为了评估实际进行的SEA实施过程,它可以作为评估SEA实施效率的判断标准。
该分析框架具体包括：
评估标准。用来评估SEA实施过程的评判指标,主要是针对SEA实施过程的一般性和特殊性进行划分指标的；
评估等级。用来评估SEA实施过程好坏的判断标准；
把SEA分为战略规划过程和公众参与规划过程,基于构建的评估标准和指标标准等级划分分析框架,确定该分析框架同两种规划过程的联系。
基于以上的研究成果,以西非贝宁共和国SEA能力建设为案例进行验证。分析了贝宁共和国SEA的法律和制度框架、SEA行政执行过程、SEA具体实施以及SEA实际操作的局限性。基于构建的SEA绩效评估分析框架,应用到《贝宁脱贫战略》(PRSP2007-2009)SEA。结果表明,《贝宁脱贫战略》SEA实施过程并不是最优的,但是最后评价结果较好,超过平均分数以上,即21个评判标准中,有16个评判标准达标。然而,《贝宁脱贫战略》SEA过程显然缺少交流性或者参与性。事实上,5个表示参与性的评判标准中,有2个评判标准处于“中等参与”程度,1个评判标准处于“低参与”程度,2个评判标准处于“很低参与”程度。
基于以上的评估结果,本文提出改善贝宁SEA实施过程的建议,这些建议以SEA实施的一般性和特殊性难点为切入点提出的,包括各种非常普遍的SEA应用成功案例里的SEA相关概念、原则和参与者。另外,战略替代方案是能够实现战略目标的所有可能的实施方案,又称为备选方案或可供选择方案。战略替代方案的制定、评估和选择是SEA工作的关键环节和核心内容。本文提出以可拓理论为基础,运用可拓策划思想制定一系列能够最大程度满足各相关团体合理利益的替代方案；并运用可拓优度评价法对各方案进行优化比选,为战略替代方案的制定和筛选提出了科学的程序和方法；并以贝宁共和国科托努市为实例,将交通规划方案与环保方案有机组合起来,制定并筛选出科学合理的替代方案,检验了将可拓理论应用于战略替代方案研究中的可靠性和实用性。
本论文得出以下结论：
a)基于方法论的分析框架可作为分析SEA实施过程及趋势的工具。根据研究结果,本论文进一步讨论了分析框架应用过程中限制因子的识别问题。
b)实证研究以SEA实施特点,战略性及参与性等方面的为主要研究内容。尽管案例分析表明SEA可实现更完善的战略决策以及有效的可持续发展,但本案例研究中,公众参与机制以及方法非常薄弱,主要体现在公众对决策过程和参与方式的理解程度低,以及机构对SEA过程实施欠缺灵活度等方面。
c)每个SEA案例必须经过具体分析才能提高其操作性。分析框架的意义并不在于比较不同的SEA过程,而是详细诊断现有的SEA过程。通过分析框架,可以真正意义上理解SEA潜在的作用从而有效提高SEA的实际操作性。
d)基于可拓理论的替代案评价及筛选构筑了一种新的SEA技术方法。案例分析表明,可拓理论在SEA实施能力研究方面可以很好的化矛盾问题为相容问题。
SEA is an analytical and participatory approach that aims to integrate environmental considerations into the formulation of policies, plans and programs; and evaluate their inter linkages with economic and social considerations. It has emerged and established itself as a good practice and widely recognized as a key mechanism for asserting sustainable development objectives since its potential role in attaining sustainable development objectives was explicitly recognized during the1992Earth Summit held in Rio de Janeiro (United Nations,1992).
Despite the many apparent advantages of SEA known through various literatures, little research has been conducted to describe how SEA is performed within a given situation. The lack of empirical research to evaluate and learn from this wealth of practical experience can be considered as a major lost opportunity for the development of our understanding of SEA (planning process in which it occurs; the ways to improve its implementation based on the evaluation of existing SEA process; and the methodological aspects to consider for its implementation).
In response to this, it is important to evaluate the practical experience with SEA in order to improve the use of the tool. To this end, the current research has been proposed to provide an analytical framework for SEA process performance evaluation.
The methodology used in this research is based on two complementary approaches including:the development of the analytical framework that can be used to analyze, from a methodological point of view, the practice of SEA and, the application of this framework to a case study (here designed by SEA for Poverty reduction strategy in the Republic of Benin, West Africa). These approaches have both been mainly based on data collected from a literature review and direct communication with experts. These data have been well-detailed and analyzed which has helped to identify and select the relevant components of the analytical framework as well as the possible reasons explaining the performance of the case study on each criterion of the framework.
The methodology used has led to various findings or results, including:
a) The research has established an analytical framework first, with respect to various criteria (generic and specific criteria) on SEA performance evaluation and second, with respect to the link between SEA process and strategic/participatory planning process. Concretely, the analytical framework is built up of21criteria including:06generic criteria and15specific criteria (grouped into8,5and2criteria respectively for the process stages, actor involved and tools used). Each criterion was assigned to2or4levels of scale according to the type of the evaluation on each criterion. Furthermore, the research has also led to the description of the usefulness of each criterion of the analytical framework as well as the identification of constraints to be taken into account for the proper use of the analytical framework.
b) The application of the analytical framework to a case study revealed that:
-Considering the overall result based on the analytical framework, the case study is generally successful in that it responds positively to16criteria of the analytical framework out of21(11out of15specific criteria and5out of6generic criteria). The weaknesses points of the case study under the analytical framework are mainly related to SEA stages, public involvement, and the inability to incorporate flexibility into process design.
-The case study is reasonably well linked with the characteristics of strategic planning with8criteria of good score out of9criteria. However, the case study is relatively poor linked with the characteristics of participatory planning. The reasons for this could be due to the highly political nature of the Plan and the need for the PRSP within established timeframes.
c) Finally, the approaches adopted in the thesis have led to the development of various recommendations concerning the aspects that should be considered for the implementation of an effective SEA. In term of recommendation, the research has also proposed a scientific procedure for alternative assessments based on extension theory. The result showed through its application to Cotonou urban traffic plan case study, that the extension planning and priority evaluation present a more efficient and scientific procedure to develop range of alternatives and confirm the preferred one with the capacity of solving the contradictions caused by the interests and needs of various stakeholders.
战略环境评价(Strategic Environmental Assessment,简称SEA),是环境影响评价在战略层次上(即法律、政策、计划、规划)的应用,它是对一项战略,具体包括法律、政策、计划、规划,以及战略替代方案的环境影响进行正式、系统和综合的评价过程。它通过对战略引发的社会经济活动的环境影响进行分析评价,提出相应的环境保护对策及战略调整建议,从决策源头控制环境问题的产生,促进社会经济环境系统的可持续发展。目前,SEA尚不完善,尤其是受多种因素制约,SEA制度存在缺陷,在SEA实施过程中面临诸多困难。要提高SEA有效性,就要对关键制度要素和实施过程进行修改及重新设计,以达到机制优化和提高SEA有效性,该研究领域已成为国际上研究与关注的热点。
本论文基于当前国内外SEA研究回顾和展望的分析,构建了SEA绩效评估分析框架体系,该分析框架是一种普适性的分析框架,该分析框架构建的目的是为了评估实际进行的SEA实施过程,它可以作为评估SEA实施效率的判断标准。
该分析框架具体包括：
评估标准。用来评估SEA实施过程的评判指标,主要是针对SEA实施过程的一般性和特殊性进行划分指标的；
评估等级。用来评估SEA实施过程好坏的判断标准；
把SEA分为战略规划过程和公众参与规划过程,基于构建的评估标准和指标标准等级划分分析框架,确定该分析框架同两种规划过程的联系。
基于以上的研究成果,以西非贝宁共和国SEA能力建设为案例进行验证。分析了贝宁共和国SEA的法律和制度框架、SEA行政执行过程、SEA具体实施以及SEA实际操作的局限性。基于构建的SEA绩效评估分析框架,应用到《贝宁脱贫战略》(PRSP2007-2009)SEA。结果表明,《贝宁脱贫战略》SEA实施过程并不是最优的,但是最后评价结果较好,超过平均分数以上,即21个评判标准中,有16个评判标准达标。然而,《贝宁脱贫战略》SEA过程显然缺少交流性或者参与性。事实上,5个表示参与性的评判标准中,有2个评判标准处于“中等参与”程度,1个评判标准处于“低参与”程度,2个评判标准处于“很低参与”程度。
基于以上的评估结果,本文提出改善贝宁SEA实施过程的建议,这些建议以SEA实施的一般性和特殊性难点为切入点提出的,包括各种非常普遍的SEA应用成功案例里的SEA相关概念、原则和参与者。另外,战略替代方案是能够实现战略目标的所有可能的实施方案,又称为备选方案或可供选择方案。战略替代方案的制定、评估和选择是SEA工作的关键环节和核心内容。本文提出以可拓理论为基础,运用可拓策划思想制定一系列能够最大程度满足各相关团体合理利益的替代方案；并运用可拓优度评价法对各方案进行优化比选,为战略替代方案的制定和筛选提出了科学的程序和方法；并以贝宁共和国科托努市为实例,将交通规划方案与环保方案有机组合起来,制定并筛选出科学合理的替代方案,检验了将可拓理论应用于战略替代方案研究中的可靠性和实用性。
本论文得出以下结论：
a)基于方法论的分析框架可作为分析SEA实施过程及趋势的工具。根据研究结果,本论文进一步讨论了分析框架应用过程中限制因子的识别问题。
b)实证研究以SEA实施特点,战略性及参与性等方面的为主要研究内容。尽管案例分析表明SEA可实现更完善的战略决策以及有效的可持续发展,但本案例研究中,公众参与机制以及方法非常薄弱,主要体现在公众对决策过程和参与方式的理解程度低,以及机构对SEA过程实施欠缺灵活度等方面。
c)每个SEA案例必须经过具体分析才能提高其操作性。分析框架的意义并不在于比较不同的SEA过程,而是详细诊断现有的SEA过程。通过分析框架,可以真正意义上理解SEA潜在的作用从而有效提高SEA的实际操作性。
d)基于可拓理论的替代案评价及筛选构筑了一种新的SEA技术方法。案例分析表明,可拓理论在SEA实施能力研究方面可以很好的化矛盾问题为相容问题。
SEA is an analytical and participatory approach that aims to integrate environmental considerations into the formulation of policies, plans and programs; and evaluate their inter linkages with economic and social considerations. It has emerged and established itself as a good practice and widely recognized as a key mechanism for asserting sustainable development objectives since its potential role in attaining sustainable development objectives was explicitly recognized during the1992Earth Summit held in Rio de Janeiro (United Nations,1992).
Despite the many apparent advantages of SEA known through various literatures, little research has been conducted to describe how SEA is performed within a given situation. The lack of empirical research to evaluate and learn from this wealth of practical experience can be considered as a major lost opportunity for the development of our understanding of SEA (planning process in which it occurs; the ways to improve its implementation based on the evaluation of existing SEA process; and the methodological aspects to consider for its implementation).
In response to this, it is important to evaluate the practical experience with SEA in order to improve the use of the tool. To this end, the current research has been proposed to provide an analytical framework for SEA process performance evaluation.
The methodology used in this research is based on two complementary approaches including:the development of the analytical framework that can be used to analyze, from a methodological point of view, the practice of SEA and, the application of this framework to a case study (here designed by SEA for Poverty reduction strategy in the Republic of Benin, West Africa). These approaches have both been mainly based on data collected from a literature review and direct communication with experts. These data have been well-detailed and analyzed which has helped to identify and select the relevant components of the analytical framework as well as the possible reasons explaining the performance of the case study on each criterion of the framework.
The methodology used has led to various findings or results, including:
a) The research has established an analytical framework first, with respect to various criteria (generic and specific criteria) on SEA performance evaluation and second, with respect to the link between SEA process and strategic/participatory planning process. Concretely, the analytical framework is built up of21criteria including:06generic criteria and15specific criteria (grouped into8,5and2criteria respectively for the process stages, actor involved and tools used). Each criterion was assigned to2or4levels of scale according to the type of the evaluation on each criterion. Furthermore, the research has also led to the description of the usefulness of each criterion of the analytical framework as well as the identification of constraints to be taken into account for the proper use of the analytical framework.
b) The application of the analytical framework to a case study revealed that:
-Considering the overall result based on the analytical framework, the case study is generally successful in that it responds positively to16criteria of the analytical framework out of21(11out of15specific criteria and5out of6generic criteria). The weaknesses points of the case study under the analytical framework are mainly related to SEA stages, public involvement, and the inability to incorporate flexibility into process design.
-The case study is reasonably well linked with the characteristics of strategic planning with8criteria of good score out of9criteria. However, the case study is relatively poor linked with the characteristics of participatory planning. The reasons for this could be due to the highly political nature of the Plan and the need for the PRSP within established timeframes.
c) Finally, the approaches adopted in the thesis have led to the development of various recommendations concerning the aspects that should be considered for the implementation of an effective SEA. In term of recommendation, the research has also proposed a scientific procedure for alternative assessments based on extension theory. The result showed through its application to Cotonou urban traffic plan case study, that the extension planning and priority evaluation present a more efficient and scientific procedure to develop range of alternatives and confirm the preferred one with the capacity of solving the contradictions caused by the interests and needs of various stakeholders.
引文
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