我国生态环境监管执法体制改革的法治困境与实践出路

Legal Predicament and the Way out for the Reform of China’s Environment Supervision and Law Enforcement System

由政策强势主导的我国生态环境监管执法体制改革在新旧制度交替阶段面临法律主体资格不明、生态环境监管执法依据选择困难及监管执法权能不匹配的法治困境。这些困境的形成与改革过程中政策-法律关系定位不当、改革政策寻求权宜之策略密切相关。为走出困境,在理念层面,我国生态环境监管体制改革应由政策主导转向法律主导;在规范层面,积极促进环境政策合法性的司法审查,审慎决定环境政策法律化,从寻求"良策权宜之治"转向"良法善治";在执行层面,实施自我审查自我矫正制度,加强基层决策参与能力建设,激励自主守法。

China’s policy-dominated reform of environmental supervision and law enforcement system is confronted with the legal predicament of unclear legal subject qualification, difficulty in selecting the basis of environmental supervision and law enforcement, and the mismatch of power and function in supervision and law enforcement. These difficulties are closely related to the improper relationship between policy and law, and expedient reform policy. In order to get out of the predicament, China’s reform of environmental supervision system should be shifted from being policyoriented to being law-oriented at conceptual level. At regulatory level, we should actively promote the judicial review of the legality of environmental policies, make prudent decisions upon legalizing environmental policies, and turn from seeking "good policies for expedient governance" to seeking "good laws and good governance". At executive level, we should implement a system of self-review and self-correction, and improve the capacity of grassroots to participate in decision-making and encourage them to abide by the law.