论我国生态环境损害索赔主体的整合

Integration of Claim Subject of Eco-environmental Damage in China

根据我国现行法律和政策的相关规定,生态环境损害索赔主体存在“两模式四主体”结构。这种结构形成的主要原因是不同索赔模式下人们对生态环境利益本质的认识不同。在现代环境保护视角下,生态环境要素既具有经济价值又具有生态价值,生态环境损害的内容包括环境要素财产损害和生态功能损害。在我国自然资源归国家所有这一总体制度框架下,环境要素财产损害实际上是国家经济利益损失,对此只能实行国家索赔;生态功能损害实际上是社会公共利益损失,对此只能实行公益索赔。在环境公益索赔中,政府作为公益管理责任者是主要的、第一序位的索赔主体;社会公众作为环境公益的直接受益者是第二序位的索赔主体,其索赔仅能弥补政府对环境公益保护的不足,起补充作用;检察机关作为法律监督者和公益代表者是最后序位的索赔主体,其索赔只是对政府与公众索赔的补充,对环境公益索赔发挥最后保障的兜底作用。

According to the relevant provisions of China′s current laws and policies,there is a structure of"two models and four subjects"for the main body of eco-environmental damage claims.The main reason for the formation of this structure is that people have different understanding of the nature of eco-environmental interests under different claim modes.From the perspective of modern environmental protection,the elements of ecological environment have both economic and ecological value,and the contents of eco-environmental damage include environmental elements property damage and ecological function damage.Under the general system framework of state ownership of natural resources in China,the property damage of environmental factors is actually the loss of national economic interests,which can only be claimed by the state;and the damage of ecological function is actually the loss of social public interests,which can only be claimed by public welfare.In the environmental public welfare claim,the government as the public welfare management responsible subject is the main and first claim subject;the public as the direct beneficiary of environmental public welfare is the second claim subject,and its claim can only make up for the government′s environmental protection;the procuratorial organ as the legal supervisor and representative of public welfare is the final claim subject,and its claim is only the supplement of the government and the public claim,and plays the role of the final guarantee for the environmental public welfare claim.