我国环境行政罚体系的重心迁移与价值调适——以《环境保护法》修订案第五十九条“按日计罚”制度为中心

Focus Transfer and Value Adjustment of Environmental Administrative Penalty System:on Article 59 of Amendment of Environmental Protection Law

通过定量化的方法对比《环境保护法》修订案颁布前后当代中国行政法体系中环境行政处罚体系的基本构成、主要种类、处罚力度与幅度、整体分布等数据,可以发现《环境保护法》修订案第五十九条对于"按日计罚"的规定及其引发的后续连锁立法动向将会造成中国大陆地区环境行政处罚体系事实上的重心迁移。作为一种新的处罚形式,对传统的特定种类应科以金钱罚的环境资源开发利用行为,《环境保护法》修订案所规定的处罚力度与幅度骤然加大,随之而来的也有更大的环境行政执法风险。在此意义上,环境利用行为人的谨慎行为义务与环境行政执法人员的执法注意义务被强化。基于这种社会背景,与先前环境行政执法实效疲敝松弛的状况相比,这种迁移重新引发了在西方国家行政法中一度显赫的裁量正义问题的勃兴,并且以人的实践理性为基石的环境行政裁量基准体系构建的重要性得以凸显与加强。

Based on a quantitative analysis to the basic structure, main kinds, power and coverage as well as the overall distribution of China＇s environmental administrative penalty system before and after the revision of Amend- ment of Environmental Protection Law, we found a focus transfer of the contemporary China administrative law system . In article 59 of the revised Amendment of Environmental Protection Law, daily penalty is obviously more severe than the traditional form of punishment, which leads to higher administrative and judicial enforcement risks of the law. The cautious behavior of environment utilizers and judicial enforcement personnel should accord- ingly be strengthened. Based on this social background, compared with the inefficient enforcement of the previous environmental administrative law, this transfer has reignited discretionary justice problems once promi- nent in the administrative laws of western countries. Meanwhile, the importance of setting up a environmental ad- ministrative discretion standard is highlighted, with practical rationality at the core.