从分散到综合:我国环境行政执法体制碎片化困境及出路

From Decentralization to Comprehensiveness:The Dilemma of China's Environmental Administrative Law Enforcement System and Its Countermeasures

我国环境行政执法体制存在执法主体众多、执法依据繁杂、执法协调机制薄弱等执法体制碎片化问题。环境行政执法体制碎片化问题有3个成因,一是分散型环境管理体制的历史惯性,二是“环境”“资源”法律概念整体性认知阙如,三是生态环境保护综合执法整合力度不足。借助整体性治理两阶段理论分析可知,我国环境行政执法体制的发展处于从协调到整合的过渡阶段。构建和完善具有中国特色的环境行政执法体制,一是要突破认知,以生命共同体理念为指引培育整体性环境行政执法理念共同体;二是需地方先行先试,深化“大综合一体化”行政执法改革,整合“环境”“资源”执法事项,尝试建构地方“超级综合执法”体制;三是要通过国家文件和立法确认,建立超边界环境综合行政执法体制。

There are many problems in China's environmental administrative law enforcement system such as numerous law enforcement subjects,complex law enforcement basis,and weak law enforcement coordination mechanism.There are three reasons for the fragmentation of the environmental administrative law enforcement system:the historical inertia of the decentralized environmental management system,the lack of overall understanding of the legal concepts of environment and resources,and the insufficient integration of comprehensive law enforcement for ecological and environmental protection.With the help of the theoretical analysis of the two stages of holistic governance,we can see that China is currently in the transition stage from coordination to integration.To build and improve the environmental administrative law enforcement system with Chinese characteristics,first of all,all parties should break through old perceptions and cultivate a holistic environmental administrative law enforcement concept community guided by the concept of life community;secondly,local governments should try first,deepen the reform of comprehensive integration of administrative law enforcement,integrate“environment”and“resources”law enforcement matters,and try to construct a local super comprehensive law enforcement system;finally,a cross-border comprehensive environmental administrative law enforcement system should be established through national documents and legislative confirmation.