我国生态环境损害赔偿诉讼制度的法律化对策

The Legalized Countermeasures of China's Ecological Environment Damage Compensation Litigation System

我国现有的生态环境损害赔偿诉讼实践始于政策性制度的确认。中办、国办于2015年、2017年先后印发了《生态环境损害赔偿制度改革试点方案》与《生态环境损害赔偿制度改革方案》,均规定了属于法律绝对保留事项之一的生态环境损害赔偿诉讼这一“诉讼制度”。而试点成熟之后,该政策性诉讼制度必将面临法律化的选择。就生态环境损害赔偿诉讼目的实现而言,用自然资源所有权的私权权源来救济环境公共利益的制度设计显然是错位的,对自然资源权属侵害的救济和对生态环境利益侵害的救济必须通过私益和公益两条救济路径来分别独立实现。为此,通过政策确立的生态环境损害赔偿制度的法律化应当将生态环境损害赔偿诉讼剥离为以国家自然资源所有权侵害为基础的自然资源损害赔偿诉讼和以生态环境功能下降为基础的(新)生态环境损害赔偿诉讼,并将(新)生态环境损害赔偿诉讼与现有的环境民事公益诉讼进行整合,用专项立法的方式重新规定。

The current practice of China's litigation for compensation for ecological damage begins with the confirmation of the policy system.In 2015 and 2017,the Central Office and the State Council issued the“Eco-environmental Damage Compensation System Reform Pilot Program”and the“Eco-environmental Damage Compensation System Reform Program”respectively,both of which define the“litigation system”——the ecological environment damage compensation as one of the absolute legal reservations.After the pilot practice is mature,the policy litigation system will inevitably face the choice of legalization.In terms of achieving the purpose of litigation for damages to the ecological environment,the system design of using the private rights of natural resource ownership to relieve environmental public interests is obviously misplaced.Remedies for the infringement of natural resource ownership and the infringement of ecological environmental interests must be realized separately through two relief paths of private benefit and public welfare.For this reason,the legalization of the ecological environment damage compensation system established by the policy should separate the ecological environment damage compensation litigation into the natural resource damage compensation litigation based on the national natural resource ownership violation and the decline in the ecological environment function(new)Eco-environmental damage compensation litigation,and integrate the(new)eco-environmental damage compensation litigation with the existing environmental civil public interest litigation,and redefine it by means of special legislation.