环境保护法按日计罚制度再审视——以地方性法规为视角

Re-examination of the Daily Penalty in Environmental Protection Law:From the Perspective of Local Regulations

为了解决"守法成本高,违法成本低"的问题,新《环境保护法》规定了按日计罚制度,环保部制定了按日计罚的实施办法,地方环境立法更是将该制度广泛用于对环境违法的制裁。在此形势下,重新审视按日计罚已有必要。作为具有行政强制执行性质的行政处罚,按日计罚制度的适用必须非常重视其行为的违法性、社会危害性和行政强制执行的国家意志性,摒弃"罚无上限";允许地方性法规适当拓展和细化按日计罚制度的适用范围和"违法排污行为"的类别,但不做偏离上位法规定的过分"变异";及时与其他责任方式综合运用,而不能一味地"一罚了之"。

In order to solve the problem of“high law-abiding costs and low illegal costs”,the new Environmental Protection Act(2014)stipulates a daily penalty system,and the Ministry of Environmental Protection has formulated implementation measures for its extensive application to sanction environmental violations.The local regulations therefore widely recognize the daily penalty to environmental violations beyond the scope that Environmental Protection Act(2014)defines.Under such circumstances,it is necessary to reexamine the nature and necessary application scope of the system of daily punishment in environmental protection law.Considering that the daily penalty system has the nature of administrative enforcement,its application must attach great importance to its behavior of illegality.Therefore local regulations ought to be of caution to apply the penalty system to“illegal sewage acts”that the Environmental Protection Act defines,in particular not deviate from the excessive“variation”.The law should use many others means to strengthen environmental protection responsibilities rather than single means of“penalty”.