环境执法权为何“逆流而上”?——基于环保案例的质性分析  

Which Factors Contribute to the“Upstream”Tractory of China’s Environment Enforcement Powers?

作　　者：龚宏龄[1] 吕普生[2] Gong Hongling;Lv Pusheng(School of Public Administration,Chongqing University,Chongqing 400044;School of Political Science and Public Administration,Wuhan University,Wuhan 430072)

机构地区：[1]重庆大学公共管理学院,重庆400044 [2]武汉大学政治与公共管理学院,武汉430072

出　　处：《中国行政管理》2021年第10期97-105,共9页Chinese Public Administration

基　　金：国家社会科学基金青年项目“公众参与环境治理的机制创新及路径选择研究”(编号:17CZZ030)。

摘　　要：在中国行政执法体制改革中,下放执法权为县乡基层执法机构赋权是主流趋势,但是,与常规改革方向形成鲜明反差的是,环境领域执法权反而逆向上收至省市层级。为何环境领域的执法权配置及其改革轨迹如此与众不同?什么原因导致其逆向流动?从理论上考察,环境执法权涉及纵向层级、横向府际以及执法主体与相对人之间的行政位阶对比等关系,进而衍化为"执哪种法""由谁执法"和"对谁执法"这样几个关键问题。以此为基础,结合案例分析发现,在环境执法实践中,属地管理潜藏着地方保护主义,污染跨域转移使得不同区域之间府际合作失灵,行政位阶悬殊导致地方环保部门无力监管强势国企,这些因素共同促成了中国环境执法权"逆流而上"的轨迹特征。In the reform of China’s administrative law enforcement system,decentralizing the law enforcement powers to empower grassroots law enforcement agencies at county and township level is the mainstream trend.However,in sharp contrast to the conventional reform direction,the powers of law enforcement in the environmental field have instead been reversely transferred to the provincial and municipal levels.Why does the configuration and the reform trajectory of enforcement powers in the environmental field present such distinctive features,and what accounts for the reverse flow?Theoretically,environmental enforcement powers are related to vertical hierarchy,horizontal inter-government relations and the contrast between the administrative status of the enforcement agency and its counterpart.The key issues are“which law to enforce”“by whom”and“against whom”.In the practice of environmental law enforcement,territorial management hides local protectionism,inter-regional transfer of pollution makes the inter-governmental cooperation between different regions dysfunctional,and the disparity in administrative hierarchy makes the local environmental protection departments unable to regulate powerful state-owned enterprises.These factors together contribute to the“upstream”trajectory of China’s environmental law enforcement powers.

关 键 词：环境执法权 逆向流动 属地管理 行政位阶 

分 类 号：D035[政治法律—政治学]