我国环境法上的按日连续处罚制度:历史发展、适用困境与完善之道  

Daily Penalty System in Environmental Law of China:Historical Development,Application Dilemma,and Improvement

作　　者：吴卫星[1] 陈诚[2] WU Wei-xing;CHEN Cheng

机构地区：[1]南京大学法学院,江苏省南京市210093 [2]武汉大学环境法研究所,湖北省武汉市430072

出　　处：《南京大学学报（哲学．人文科学．社会科学）》2024年第1期50-59,163,共11页Journal of Nanjing University(Philosophy,Humanities and Social Sciences)

基　　金：国家社会科学基金重大项目(20&ZD091)。

摘　　要：自《中华人民共和国环境保护法》修订以来,按日连续处罚制度在我国实施已近9年,有必要对其立法和实施情况进行全方位的检视。在立法层面,按日连续处罚制度在我国经历了“地方立法先行先试—国家立法逐步展开—地方立法积极回应”三个阶段,已形成较为完备的法律规范体系;在实施层面,执法数据表明该制度的适用率极低,究其原因既有重罚主义倾向下执法人员不敢罚的主观成因,也有该制度本身不合理的客观成因。有鉴于此,可以从立法和执法两条路径出发对其进行完善。在立法上扩大适用范围,简化法定构成要件,完善计罚方式;在执法上明确“要件裁量”和“效果裁量”以规范行政处罚裁量权的行使,同时为“可以不予”按日连续处罚的违法行为设计双轨制罚则。The revised Environmental Protection Law of 2014 ushers in a daily penalty system in national legislation.This system has been implemented in China for more than eight years.It is necessary to conduct a comprehensive review of its legislation and implementation.At the legislative level,the daily penalty system in China has gone through three stages:“local legislation takes the lead in trial,national legislation gradually comes into being,and than local legislation actively responds.”A relatively complete legal regulatory system has been formed.At the implementation level,law enforcement data shows that the application rate of this system is extremely low,and law enforcement officers seem to be reluctant to carry it out.The reasons for this are not only the subjective one that the law enforcement officers dare not punish under the tendency of heavy punishment,but also the objective one that the system itself is cumbersome and unreasonable.In view of this,it can be improved from two paths of legislation and law enforcement:in legislation,to absorb local legislative experience,expand the scope of application,simplify the statutory constitutive requirements,and redesign the punishment method;and in enforcement,to clarify the“element discretion”and“effect discretion”to regulate the exercise of administrative penalty discretion.At the same time,the dual track penalty rules are to be designed against illegal behaviors that“may not be”punished on a daily basis.

关 键 词：按日连续处罚 环境保护法 行政裁量 双轨制罚则 

分 类 号：D922.68[政治法律—环境与资源保护法学]