生态补偿的理论澄清与制度重塑——以司法裁判的实践反思为视角

Theoretical Clarification and Institutional Reconstruction of Ecological Compensation——From the Perspective of Practical Reflection of Judicial Adjudication

在财产权保障理论的指引下,法院按照“无依据,则无补偿”“如何补偿,由行政机关自主裁量”的逻辑来裁断生态补偿案件,而“依据”的制定者为行政机关,最终造成行政机关主导着补偿给谁、补偿多少等生态补偿问题的界定和解决,以致于“案结事不了”。尽管财产权保障理论为早期生态补偿制度设计提供了理论依据,但是无法解释2014年《环境保护法》修订以来生态补偿制度的发展实际。结合当前生态补偿的立法规定,生态补偿理论依据应当是保障平等发展权。有别于行政补偿制度,生态补偿是由国家、生态环境保护受益者给予公民、法人或其他组织因生态环境保护造成平等发展权益损失的补偿制度。其中,国家对私主体的生态补偿属于基础性补偿,在此基础上,同级政府之间、平等主体之间通过生态补偿共享发展利益,以最大限度地弥补平等发展权受限制的地区和个人的利益损失。

Under the guidance of the theory of property rights protection,the court decides ecological compensation cases according to the logic of“no basis,no compensation”and“how to compensate is at the discretion of the administrative organ”.However,the“basis”was made by administrative organs,which eventually led to the definition and settlement of ecological compensation issues such as who should be compensated and how much should be compensated.As a result,“the case cannot be resolved”.Although the theory of property rights protection provided theoretical basis for the early design of ecological compensation system,it cannot explain the development of ecological compensation system since the revision of the Environmental Protection Law in 2014.According to the current legislation of ecological compensation,the theoretical basis of ecological compensation should be to guarantee the equal right to development.Different from the administrative compensation system,ecological compensation is a compensation system that the state and the beneficiaries of ecological environmental protection give to citizens,legal persons or other organizations for the loss of equal development rights and interests caused by ecological environmental protection.Among them,the state's ecological compensation to private subjects is a basic compensation.On this basis,governments at the same level and equal subjects share development benefits through ecological compensation,so as to make up for the loss of interests of regions and individuals with restricted rights to equal development to the maximum extent.