摘要
为破解“公地悲剧”所导致的“企业污染、群众受害、政府买单”僵局,党中央、国务院于2015年起开始试点并推行生态损害赔偿制度改革。作为该项改革的突出亮点与重大创新,生态损害赔偿磋商制度应运而生。从规范层面分析,赔偿磋商制度是指国务院授权的行政机关主动与环境危害行为人就生态修复启动时间、损害赔偿责任承担方式等内容进行平等磋商,旨在达成磋商协议,并确保磋商协议内容可以实现的全新环境调处模式。为全面洞悉赔偿磋商制度的运行现状,本文以2015年以来的司法数据为基础,运用实证分析方法检视了生态损害赔偿案件在地域分布、案件类型、索赔方式及磋商结果等方面的发展态势。据此发现,赔偿磋商制度在磋商协议争议解决机制的选择,以及其与传统行政管制、新型索赔诉讼之间的适用等问题上存在较大困顿。究其根本原因,在于理论界与实务界对于赔偿磋商法律性质的认知存在较大偏差。从解释论视角观之,当前学界主流观点是从纯粹私法视角或特殊私法视角出发,将赔偿磋商界定为一种绝对意义上的民事行为抑或涉及公法元素的相对意义上的民事行为。这两类观点虽能在其解释论框架下揭示赔偿磋商制度的部分特征,但此举无益于完整勾勒出赔偿磋商制度之全貌。基于生态损害的公共性、社会性特质,同时考虑现代行政治理体系的回应型变迁,应当从“协商行政”视域出发对赔偿磋商法律性质予以重识。依此进路即可发现,赔偿磋商的实质乃是行政机关借用平等协商之私法手段来实现救济生态损害之公法目标的公权行政之新样态。由此,赔偿磋商制度的发展方向须嵌入行政法维度予以综合把握。具体而言:①构建“行政协商+行政命令+行政代履行”之“先柔后刚”的公法问责机制,实现赔偿磋商与传统行政管制的优化适用;②废除磋商协议的司法确认模式而采非诉行政执行模式,力促磋商协议争议解决机制回归正途;③设立“政府主导、依法实施、执法优先、司法补充”的救济规则,确保赔偿磋商与索赔诉讼的有序衔接。
In order to break the deadlock that‘enterprises cause pollution,people fall victim and the government pays the bill’due to‘The Tragedy of the Commons’,the Central Committee of the Communist Party of China(CPC)and the State Council has carried out pilot programs and promoted the reform of ecological damage compensation system.As a highlight and a major innovation point of the reform,ecological damage compensation consultation system emerged at the right moment.From the nomothetic dimension,compensation consultation system means that the administrative body authorized by the State Council takes the initiative to negotiate with the actor for environment hazards equally on the starting time of ecological restoration,the way of liability for damages,etc.It aims to reach a consultation agreement and ensure that its agreement contents are implemented in a new model of environmental mediation.In order to fully understand the current situation of the compensation consultation system,this paper examines the development trend of ecological damage compensation cases in terms of regional distribution,case types,claim forms and consultation results by empirical analysis based on judicial data since 2015.It is found that the compensation consultation system is in a great dilemma in the choice of the safeguard mechanism of the agreement,and the application between it and the traditional administrative control and the new claim litigation.Ultimately,it is caused by the great deviation in the cognition of the legal nature of compensation consultation between the theoretical and practical circles.From an interpretative perspective,the mainstream of current academic circles starts with the pure private law or special private law,and defines compensation consultation as an absolute civil act or a relative civil act involving elements of public law.Although these two kinds of views can reveal some characteristics of compensation consultation system under the framework of its interpretative theory,it is not conducive to complete the outline of compensation consultation system.In consideration of the publicity and social characteristics of ecological damage as well as the responsive change of the modern administrative governance system,it shall attach great importance to the legal nature of compensation consultation from the view of‘consultative administration’.In this way,it can be seen that the essence of compensation consultation is a new form of public administration,in which the administrative organizations realize the goal of public law in relief of ecological damage by means of private law of equal consultation.In consequence,it is of necessity to embed the development direction of compensation consultation system into the dimension of administrative law to comprehensively grasp.To be more specific,firstly,to construct the public law accountability mechanism of‘administrative consultation+administrative order+displacement of fulfillment by administrative departments’based on‘mercy before force’for the compensation consultation and optimization of the application of traditional administrative control.Secondly,to abolish the judicial confirmation mode of consultation agreement for the non-litigation administrative execution mode,aiming to urge the implementation safeguard mechanism of consultation agreement to return to the right track.Thirdly,to establish the relief rules as‘government domination,legal implementation,prior law enforcement and judicial supplement’,so as to ensure that compensation consultation and claim litigation are connected in order.
作者
彭中遥
PENG Zhong-yao(Law School,Hunan University,Changsha Hunan 410082,China;Collaborative Innovation Center of Judicial Civilization,Wuhan University,Wuhan Hubei 430072,China)
出处
《中国人口·资源与环境》
CSSCI
CSCD
北大核心
2020年第10期121-131,共11页
China Population,Resources and Environment
基金
2020年度江苏省社科基金重点项目“我国生态环境修复制度的体系化研究”(批准号:20FXA002)
司法部2019年国家法治与法学理论研究课题“生态环境损害责任适用疑难问题研究”(批准号:19SFB2062)
教育部2019年人文社会科学青年基金项目“生态修复责任的法律定位及适用规则研究”(批准号:19YJC820023)
中国法学会2018年部级法学研究课题“生态环境损害责任行政追究机制研究”(批准号:CLS2018D130)。
关键词
生态损害赔偿磋商制度
实证分析
解释论分析
公权行政
发展方向
ecological damage compensation consultation system
empirical analysis
interpretative analysis
administration of public right
development direction
