论政府提起生态环境损害赔偿诉讼的制度空间  

The System Space for Administrative Organs on Initiating the Ecological Environment Damage Compensation Litigation

作　　者：彭中遥 PENG Zhong-yao(Hunan University)

机构地区：[1]湖南大学法学院 [2]武汉大学国家“2011计划”司法文明协同创新中心

出　　处：《华中科技大学学报（社会科学版）》2021年第4期85-96,130,共13页Journal of Huazhong University of Science and Technology(Social Science Edition)

基　　金：2020年度湖南省社会科学基金青年项目“生态环境损害救济的模式选择研究”(20YBQ030)。

摘　　要：生态环境损害赔偿诉讼制度的确立,对我国生态文明建设、环境司法改革均具有重要的现实意义。然而,目前我国中央层面的政策解读与制度设计却使得该项诉讼面临极大的潜在挑战:既无法从理论渊源上予以圆满解释,也未合理定位生态环境损害救济场域中行政权与司法权的功能边界,导致司法权极易侵入甚至取代行政权。从现行实践看,生态环境损害赔偿诉讼的运行状况也难言令人满意,其不仅存在适用条件“模糊”“泛化”之风险,而且已然与既有制度形成“重叠”“冲突”之乱象。检视行政法治发展的一般规律,行政权与司法权大体需遵循“相互尊重专长”“行政权优先”的基本原则。行政机关(政府)作为依法行使国家权力、执行国家行政职能的机关,对环境公共利益的维护理应首先仰赖行政权,唯有在穷尽行政管制手段仍无法有效解决生态环境损害问题时,才存在提起生态环境损害赔偿诉讼的制度空间。未来,我国应严格依照“执法优先、司法补充”之原则,协同运用行政执法、赔偿磋商、索赔诉讼等多种手段,实现生态环境损害救济的全覆盖。The establishment of ecological environment damage compensation litigation system has a great significance for Chinese construction of ecological civilization and environment judicial reform.However,the current policy interpretation and system design at the Chinese central government level have made the ecological environment damage compensation litigation face great potential challenges:neither can it be satisfactorily explained in terms of the theoretical origin;nor has it rationally positioned the functional boundary between the administrative power and the judicial power in the field of eco-environmental damage remedy,resulting that the judicial power may extremely easily invade or even replace the administrative power.Judging from the current practice,it is hardly safe to say that the operation status of ecological environment damage compensation litigation is satisfactory,with the risk of the“fuzzification”and“generalization”of the applicable conditions which have already“overlapped”and“conflicted”in the existing systems.Based on the general law of the development of the administrative rule of law,it is understandable that the administrative power and the judicial power generally follow the basic principles of“mutual respect for strength”and“priority of administrative power”.The administrative agency(government),as an agency that exercises state power and performs state administrative functions in accordance with the law,should first rely on administrative power to safeguard environmental public interests.Only when the exhaustion of administrative control methods can not effectively solve the problem of ecological environmental damage,could there be an institutional space for initiating an ecological environment damage compensation litigation.Therefore,in the forthcoming future reform,China should strictly follow the principle of“administrative law enforcement priority and judicial supplement”,and coordinate the utilization of administrative law enforcement,compensation consultat

关 键 词：政府 生态环境损害赔偿诉讼 公法性质 私法操作 制度空间 

分 类 号：D925.1[政治法律—诉讼法学] D922.68[政治法律—法学]