生态环境损害赔偿合目的性的制度保障

Institutional guarantee of the purposive nature of eco-environmental damages

生态环境损害赔偿的实施需要配套规章支持。美国内政部(DOI)制定的自然资源损害评估规章,确立了由受托人组织实施、依规划、分阶段的自然资源损害评估程序。其通过“预评估”筛选、过滤不当案件,在正式评估中严格区别“损伤”与“损害”并进行合理转化,为后续生态修复的实施提供了良好基础。DOI规章的成功经验在于:第一,内容具体、明确,衔接立法,高规格,确保可操作性;第二,强调公众参与,鼓励多方合作,动态灵活调整,确保公信力;第三,区别事实与价值,转化科学与法律,分阶段、分步骤处理,确保制度理性;第四,范围限缩,层层过滤,注重实施基础,强调成本收益,确保可实施性;第五,坚持回复导向,着眼“服务”恢复,强调同等补偿,确保环境实效。我国生态损害赔偿立法较为粗略,配套制度不足,应从以下方面完善:第一,完善评估细则,概念术语与相关立法保持统一,提高可操作性;第二,明确鉴定评估规则的司法适用效力;第三,区分科学"损伤"与法律"损害",避免损害类型"全覆盖";第四,修订细化《总纲》,明确实际修复成本方法优先,经济价值方法补充,确保可实施性;第五,优先实施修复责任,金钱赔偿后位补充,确保修复实效。

The implementation of compensation for eco-environmental damage needs supporting regulations.The DOI(Department of the Interior)NRDA regulations have established a fiduciary,planned,and phased NRD assessment process,which,by filtering improper cases through‘pre-assessment’,strictly distinguishes‘injury’from‘damage’in the formal assessment and makes a reasonable transformation,thus providing a good foundation for the implementation of subsequent ecological restoration.The success of DOI regulations lies in the following aspects:First,the content is specific with high specification,which is cohesive with the legislation to ensure their operability;Second,DOI regulations emphasize public participation,encourage multi-party cooperation,and facilitate dynamic and flexible adjustment so that public credibility can be ensured;Third,DOI regulations distinguish fact from value and transform science to law in steps that can ensure institutional rationality;Fourth,DOI regulations limit the scope by filtering and emphasizing cost-benefit analysis to ensure their implementation;Fifth,DOI regulations stick to a restoration-approach by focusing on‘service’restoration and equal compensation to ensure effectiveness.China’s ecological damage compensation legislation is relatively rough,the accompanying system is insufficient,should be improved from the following aspects:First,to improve the assessment rules,the concept of terms and related legislation to maintain unity,improve the operational.Second,make clear the judicial application effect of appraisal evaluation rules.Third,distinguish scientific‘injury’from legal‘damage’to avoid‘full coverage’of damage types.Fourth,revise and refine the General Program,and make it clear that the actual restoration cost method is the priority,and the economic value method is supplemented to ensure the practicability.Fifth,give priority to the implementation of restoration obligation instead of money compensation to ensure the effectiveness of restoration.