垂改背景下县级环境监管权的重组模式及其优化方向  

County-level Environmental Supervision Power's Reorganization and Optimization under the Background of Vertical Management Reform of Environmental Protection Institutions

作　　者：丁霖 竺效[2] Ding Lin;Zhu Xiao(School of Environment&Natural Resources,Renmin University of China;Law School,Renmin University of China,Beijing 100872)

机构地区：[1]中国人民大学环境学院 [2]中国人民大学法学院,北京100872

出　　处：《中国行政管理》2021年第8期31-39,共9页Chinese Public Administration

基　　金：研究阐释党的十九届五中全会精神国家社科基金重大项目“完善中央生态环境保护督察制度研究”(编号:21ZDA088)。

摘　　要：环保垂改引发县级生态环境派出机构与县级政府的分离,加深县域范围内生态环境治理困境。引入“结构-过程”框架对这一机构分离进行剖析可见,县级环境监管权产生了结构过程双重分化。实践中,县级层面探索在党委领导下成立生态环境议事协调机构实现县级环境监管权的重组。结构与过程双重视角分析可见,实践中县级生态环境议事协调机构对环境监管权重组呈现虚化间歇、虚化常态、实体间歇与实体常态四种模式。四种模式各自具有不同的适用情景,但其运行仍面临合法性、运行效率、权力监督等方面的困境。生态环境议事协调机构应通过县级党委政府的赋权与信息公开明确合法性基础,通过流程再造明确权力界限、提高执行效率,通过多元主体参与形成监督与制约,以环境治理现代化思维来化解县级生态环境议事协调机构不同运行模式所面临的挑战。The vertical management reform of environmental protection institutions leads to the separation of county-level environmental agency and county-level government,deepening the dilemma of environmental governance within the county.The paper introduces “structure-process” framework to analyze the institutional separation,which shows that the county-level environmental supervision power has a dual differentiation of structure and process.At the county level,it is explored in practice to set up the environmental discussion and coordination institution under the leadership of the Party committee,so as to realize the reorganization of the environmental supervision power.Based on the analysis of the structure and process of the reorganization of the environmental supervision power,it can be seen that in practice,the reorganization of environmental supervision power in the county-level environmental discussion and coordination institution has four modes of virtual intermittence,virtual normal,entity intermittence and entity normal.The four modes are applicable,but facing the defects of legitimacy,operation efficiency and power supervision.The paper suggests that the county-level environmental discussion and coordination institution should clarify its legal basis through the empowerment of the county-level Party committee and government and the information disclosure by itself,define its power boundary and improve the implementation efficiency through process restructure,and form supervision and restriction through the participation of multiple subjects,and resolve the challenges facing its different operation modes with the thinking of modern environmental governance.

关 键 词：环保垂改 结构-过程 环境监管权 生态环境议事协调机构 治理现代化 

分 类 号：D035[政治法律—政治学]