生态环境损害政府诉权优先的制度检视与完善

Review on Litigant Right Priority of Government on Eco-environment Damage and Its Improvement

针对生态环境遭受损害的情况,我国环保法、民诉法等制度规定了社会组织和政府机构的民事诉权,但并未明确行使顺位,二者应当是互不相涉的平行关系。但是,部分地方通过个案裁判和司法政策,创制出政府诉权优先的规定,并为最高院司法解释采纳。此举在立法技术上僭越了《立法法》规定的法律保留范围,在制度内容上造成政府执法权、诉权与社会组织诉权间的逻辑混乱,使两类诉权在性质和功能方面出现悖论,损及社会诉权所象征的环境民主价值。不过,优先模式对因应生态环境救济措施复杂性,激发政府环保责任不无裨益。因此,应当在实践需求与法治逻辑间寻求一致性,矫正片面承认公法主体优先的解释歧见,立足诉讼客体的类型化分野,善用共同原告、诉讼支持等制度,形成诉权融合实施的科学制度。

As regard to eco-environment damage,China’s environment law and civil procedural law has conferred litigant right to civil society and governmental branch,but there is no priority on their relation,which is supposed to be parallel.However,some local precedent and judicial policies have made the regulation of government’s priority,which is accepted by the Supreme Judicial Court.As a result,this may violate"legal reserve"article in the Legislative Law,and cause logic confusion of litigant rights between government and social organization because of the dilemma of their legal character and function.Ultimately,the value of environment democracy embodied in social litigant right would be destroyed.On the other hand,it is a rational reaction to complexity of relief measures for eco-environment damage,and is helpful in operation of governmental responsibility.Therefore,according to consistent practical needs and legal logic,we’d better make use of co-plaintiff,litigation support and other rules based on scientific categorization on litigant objects,after correcting legal interpretative inaccuracy,in order to establish blending litigant operating rule.