论中国环境预警制度的法治化--以行政权力的规制为核心

On the legalization of China’s environmental early warning system:taking the regulation of administrative power as the core

环境预警制度蕴含了一项使行政权力合法扩张的"对应性架构",即预警级别与"强制型"或"限制型"措施之间的充分必要关系。在制度运行过程当中,环境行政权力却出现了"选择性失语"和"运动式肆意"的问题,具体表现为:一是预警级别发布时的"隐匿"与"从轻",从而对公民健康权益保护不足;二是预警状态下环境行政权力的扩张过度,使得对个人自由与企业经济自由侵害过度。由于环境治理领域"被害人-加害人"二元对立关系的模糊化、趋同化甚至同一化,传统公法学体系中的权力制约理论无法对预警状态下多样化和多层次性的行政权力进行有效地规制。那么,便有必要对现有的环境预警制度进行修正与纠偏。因此,可以从"对应性架构"的载体及其前后两端入手,对环境预警制度进行法治化建构。具体而言,对环境预警的载体"应急预案"进行形式改造,提高环境应急预案的规范层级,完善环境应急预案制定、修改等程序性规定;明确不同预警级别设定的规范层级,将作为被宪法所保护的客观利益——生态环境利益与经济利益的边界——通过"前端"预警标准予以划分;对预警状态下行政权力的"外部"制约程序予以完善。基于预警级别标准体系的划分,可以通过司法程序对"后端"环境应急预案进行"附带性审查",同时,赋予私主体直接针对预警状态下具有"外化"法效力的内部行政行为提起行政诉讼的诉权。

The environmental early warning system contains a‘corresponding framework’for the legitimate expansion of administrative power;that is,a sufficient and necessary relationship between the warning level and the‘mandatory’or‘restrictive’measures.In the process of system implementation,the environmental administrative power has the problems of‘selective aphasia’and sports-style willfulness,which are embodied in the following aspects:first,withholding data or downgrading the level of impact in the release of warnings would result in insufficient protection of citizens’health rights and interests.Second,excessive expansion of environmental administrative power tends to cause excessive infringement on individual freedom and the economic freedom of enterprises in the state of early warning.Due to the ambiguity,assimilation and even identity of the binary antagonistic relationship of‘victim-victimizer’in the field of environmental governance,the power restriction theory in the traditional public legal system cannot effectively regulate the diversified and multi-layered administrative power in the state of early warning.Therefore,it is necessary to rectify and amend the existing environmental warning system,starting from the carrier of‘corresponding framework’and its two ends in order to fully legalize the environmental early warning system.Specifically,it is suggested to reform the form of‘emergency plan’,i.e.,the carrier of environmental early warning;elevate the standard level of environmental emergency plan;and improve the procedural regulations such as the formulation and modification of environmental emergency plan.The standard levels set by different early warning grades should be clarified,and the objective benefits protected by the constitution-the boundary between ecological environmental benefits and economic benefits-shall be divided by‘front-end’early warning standards.And the‘external’restriction procedure of administrative power in the early warning state is expected to be improved.Based on the division of the standard system of early warning grades,the‘back-end’environmental emergency plan can be subject to‘incidental review’through judicial procedures.Meanwhile,private subjects should be given the right to file administrative lawsuits directly against internal administrative acts with the effect of‘externalization’law under the state of early warning.