政策与法律双重维度下生态补偿的法理溯源与制度重构

The legal sources and institutional reconstruction of ecologicalcompensation under the dual dimensions of policy and law

目前中国生态补偿实践已经积累了大量的经验,在部分领域已经取得了良好的效果,但其法理研究比较薄弱,主要表现为对政策和法律层面运行逻辑的混淆,公法原理与私法原理的杂糅。生态补偿政策与法律均有其存在的必要性和正当性。本文基于这一思路分析了政策和法律视角的生态补偿制度现状与原理,并以公法和私法原理解释其制度逻辑,从而探寻法理基础。生态补偿政策的异化根源于传统国家治理体制,目前以“项目制”行政拨款和治理方式为基础,地方将中央拨付的补偿资金用于环境治理后收到环境保护实效的同时,消解了中央拨付资金的意图。在法律层面,生态补偿并未产生规制行政权力以及调节私人利益的制度效果,导致法律调节长期被政策所主导,处于“失语”状态。生态补偿的法理探讨应当区分公法规制与私法调节的范围,在公法层面确定规制行政权力的基本理念,拓展行政补偿的理念与实体制度范围,并将其应用到生态补偿法律制度的构建中;私法层面,应当在遵守公法设立的管制性规范的前提下,承认一定良好程度的生态环境的经济价值和可交易性,进一步发掘合同法、物权法以调节个体环境利益的制度空间。在生态补偿制度的完善方面,政策层面的生态补偿应在明确事权划分的基础上,进一步发掘地方或区域环境协同治理的空间,法律层面应以立法为核心,行政补偿进一步精细化,私法相关制度应体现“绿色”理念。政策与法律双重维度的生态补偿制度各自发挥功能,避免出现互相交织的局面,同时也为正在推进的《生态补偿条例》的制定提供必要的理论支撑。

Currently,China has accumulated a lot of experience in the practice of ecological compensation,andhas achieved good results in some fields,but jurisprudence research in this respect is relatively weak,which is mainly manifested in the confusion of the operation logic atthe policy and legal levels,and the mingling of the principles of public law and private law.The policy and law on ecological compensation have their legitimacy and necessity to exist.Based on this idea,this paper analyzes the status and principle of the ecological compensation system from the perspective of policy and law,and explains its institutional logic on the basis of the principles of public law and private law,so as to explore its legal basis.The detachment of the ecological compensation policy is rooted in the traditional national governance mechanism.At present,based on the‘project system’of administrative appropriation and governance methods,when local governments use the compensation funds allocated by the central government and achieve the effect of environmental protection,it dispells the central government’s intention of allocating funds.At the legal level,ecological compensation has not produced the institutional effect of regulating administrative power and adjusting private interests,resulting inlegal regulation being dominated by policies for a long time and in a state of‘aphasia’.Hence,the discussion on the jurisprudence of ecological compensation should focus on distinguishing the scope of regulation by public law and of adjustment by private law,determine the basic concept of regulating administrative power at the level of public law,expand the concept of administrative compensation and the scope of entity system,thus applying it to the construction of the legal system of ecological compensation.At the level of private law,to a certain extent,economic value and tradabilityof ecological environmentshould be recognized on the premise of observing the regulatory norms established by public law,and Contract law and Property law should be further explored to adapt the institutional space of individual environmental interests.In terms of improving the ecological compensation system,the ecological compensation at the policy level should further explore the space for collaborative governance locally or regionally on the basis of a clear division of administrative power.At the legal level,legislation should be the core,with the administrative compensation being further refined,and relevant system of private law should reflectthe new principle of green development.The ecological compensation system with dual dimensions of policy and law functionsrespectively to avoid the intertwined situation,and at the same time provides the necessary theoretical support for the formulation of Regulations of Ecological Compensation that are being promoted.