比例原则视角下地方环境行政规制合理化研究——以农作物秸秆禁烧为切入点

The rationalization analysis for regional environmental administration regulation under perspective of proportion principle: taking examples of prohibiton of burning crop straw

地方政府作为行政区划内环境质量的法定责任主体,其环境保护义务的有效履行与行政规则的合理化程度密切相关。然而现阶段以"农作物秸秆露天禁烧和综合利用"为代表的地方环境行政规制,普遍存在规制目的错位、规制手段单一、利益衡量片面等合理性欠缺的问题,不仅致使环境公共利益的缓慢增进、治理成本的高额投入与民众的热切期许难以协调,且环境行政规制自身的效能、效率、公平性等方面亦无法兼顾。探究地方环境行政规制合理化欠缺的症结,规制目的—手段的错位不容忽视。比例原则作为公法上普遍适用的重要原则之一强调规制目的与手段的理性平衡,其包含的妥当性、必要性、均衡性内涵分别从目的导向、实效导向、价值导向对行政权力的行使进行规范。借助主权性权力实施的地方政府环境行政规制行为,应将比例原则作为地方环境行政规制理念及制度设计的价值取向之一,方能扭转官僚群体目的理性约束下规制目的的形式正当导向、传统思维固化下规制手段的命令控制型偏好、行政权力主导下规制利益的衡量缺失。具体而言,首先明确生态环境质量监督管理责任,以动态的环境质量实效考察促使地方环境行政规制将维护环境公共利益作为规制目的正当性的唯一考量;其次从增进环境公共利益出发"多元因应"规制手段,将规制机关与被规制者在信息交流中达成的合意理性作为确定最小侵害手段的重要基础;最后实现地方环境行政规制的利益均衡,不仅强调社会整体利益与环境公共利益的均衡,更应通过公众参与的程序正当确保公平分配环境负担。

As the legal liability subject of regional environmental quality, local government is the legislative institution of environmental regulations which has a close link with improvement of environmental quality. However,local environmental regulations,represented by The Ban of Incineration Outdoors and Integrated Utilization to Straws of Crops,regularly have rationalization problems,including objective malposition,unitary regulation measures,and unilateral interest measurement. All these problems bring difficulties in improving environment public interest,imbalance of high governing cost and people's eagerly anticipation,and low efficiency,effectiveness and fairness in environmental regulation. It is significant to explore the reasons of lacking rationalization in local environmental regulation through the perspective of malposition of regulation goals and means. As one of the most important principle,proportionality principle has been applied generally in public law that emphasizes the balance between goals and means of regulation,in which the content of appropriateness,necessity and balance regulates the implementation of regulation power from the perspective of goal orientation,effectiveness orientation and value orientation. Therefore,it is obligatory to adhere to proportionality principle when doing local environmental regulation,which should be the idea of local environmental administrative regulation and the initiative of legislation. Exactly speaking,three steps can be followed. Firstly,local environmental regulation should only regard maintaining the environmental public interest as a legitimate aim via clarifying the environmental supervision responsibility for examining environmental quality dynamically; then,‘pluralistic adaptively ' regulation measures should be applied with the starting point of enhancing environmental public interest. Besides,minimum damage measures should be adopted by means of consensus with information of administrative counterparts; lastly,interest balance of local environmental regulation can be achieved with ‘two-level ',which highlights the balance of the whole social interest and environmental public interest and allocating the environmental responsibility equally by guaranteeing due process of public participation.