生活垃圾分类的实践困境与义务进路

The practical dilemma and obligation approach of household garbage classification

《生活垃圾分类制度实施方案》的出台,标志着生活垃圾强制分类由点及面地渐次展开。生活垃圾兼具污染性与资源性的特点,无论是在立法层面,还是在政策设计层面,亦或是在实践层面,都以生活垃圾减量化、无害化、资源化为主要目标。本文通过实证分析、比较分析、归纳分析对规范性文件、政策文本及其社会效果进行综合考察,梳理出当前在涉及生活垃圾分类这一议题中所存在的"四个断裂":生活垃圾分类义务在法律体系中的断裂、生活垃圾分类意愿与行为的断裂、垃圾分类回收再利用循环机制的断裂、法律政策设计初衷与运行实践的断裂。"四个断裂"是对阻碍生活垃圾分类诸多因素的概括性总结,对"四个断裂"的消解与弥合,需要在技术创新、生产安排、生活方式、法律规范、行政管理模式等领域进行调整。本文立足于生活垃圾分类的重要主体——公民这一切入点,提出确立公民生活垃圾分类义务对于不同程度地改善"四个断裂"具有极大的必要性和重要的现实意义。公民生活垃圾分类义务包括预防义务、填补义务、改善义务、合作义务,不仅在内在结构中具有规制、指导功能,在外在体系上也具有衔接和协调功能,且该种衔接和协调功能能够在垃圾分类回收再利用循环机制、法律政策设计与运行实践、生活垃圾分类意愿与行为之间得以延伸和嵌入。公民生活垃圾分类义务的实现,以生活垃圾分类义务框架的重构和绿色生活方式的培育为基础性要素,同时需要政府转变其单中心治理逻辑,提供良好的外部管理环境和"互联网+"技术创新的便捷性支持。

With the enactment of the Implementation Plan of Household Garbage Classification System,compulsory classification of household garbage has been gradually carried out. Household garbage can be used as pollutants or resources. The goal reflects in laws,policy and law practice is to make the garbage less,harmless and recycled. By reviewing laws and regulations,policies and their social effects through empirical analysis,comparative analysis and inductive analysis,this paper raises the four issues: the absence of household garbage classification obligation in the legal system,the conflict between citizens’ intention and behavior,the problem of recycling mechanism,and a huge gap between legal policy and practice. The four issues above are a general summary of factors which hinder the classification of household garbage. To solve the four problems,it is necessary to adjust the technological innovation,production arrangement,lifestyle,rules and administrative management mode and so on. Given citizens playing an important role in the classification of household garbage,this paper argues that the establishment of the obligation of household garbage classification will be helpful to solve the four problems at different levels. The obligations of classifying household garbage include prevention,compensation,improvement and cooperation,which have not only the functions of regulation and guidance in the internal structure,but also connection and coordination in the external structure. Moreover,the establishment of obligations can connect the elements in the recycling mechanism,and narrow the gap between legal policies and practice,as well as citizens’ intention and behavior. Citizens’ domestic garbage classification obligation is based on the framework of household garbage classification obligation and the green lifestyle. At the same time,it is significant to change the single center treatment mode of governments,provide a good external management environment,and use‘Internet +’technology to improve the convenience of household garbage classification.