论中国预防性环境公益诉讼的逻辑进路与制度展开

Logic and system development of preventive environmental public interest litigation in China

预防性环境公益诉讼强调对环境风险的预防功能,有助于完善环境风险规制体系、顺应司法救济逻辑顺位并回应社会公众预防环境风险之需求。当前,中国预防性环境公益诉讼面临着偏离司法裁判逻辑、忽视预防性责任主体、受限于损害救济范畴等局限性问题,致使诉讼预防性功能彰显不足。现代社会下的行政机关承担着环境风险规制任务,但风险的科学不确定性必然会使行政权遭遇风险规制难题,美国货运协会案表明对环境风险行政责任的寻求不仅具备必要性,也具备可行性。中国预防性环境公益诉讼应当转向以公法责任为基础的公法诉讼类型,强化法定义务主体的风险预防责任,涵盖环境资源利用行为与环境风险行政规制行为。从逻辑进路看,预防性环境公益诉讼应当坚持尊重环境风险行政判断的基本立场,确立预防性环境行政公益诉讼的监督地位和预防性环境民事公益诉讼的递补地位,并在诉讼过程中纳入包含环境健康要素在内的风险考量,明确利益衡量方法的适用,确立多元主体诉权融合。就具体制度而言:一是在坚持公法诉讼性质定位基础上,作出具备公法属性的立法思路设计,包括立法模式、风险范围及程序规则;二是通过拓宽案件线索来源、诉前程序的类型化、明确证明责任分配规则及完善风险认定体系这四个方面构建预防性环境行政公益诉讼,以发挥其环境风险治理监督功能;三是通过细化风险认定标准、引入不同方式的诉前程序、完善证明责任分配规则及增加司法听证程序来重构预防性环境民事公益诉讼,实现诉讼预防性措施的优化适用。

Preventive environmental public interest litigation emphasizes the prevention function of environmental risk,which helps to improve the environmental risk management system,conform to the logical order of judicial relief and respond to the public’s demand for environmental risk prevention.At present,preventive environmental public interest litigation in China is faced with some limitations such as deviating from the logic of judicial judgment,ignoring the subject of preventive responsibility,and being limited to the scope of damage relief,which results in insufficient performance of the preventive function of litigation.In the modern society,administrative organs undertake the task of environmental risk regulation,but the scientific uncertainty of risks will inevitably make administrative power encounter difficulties,the case of American Trucking Associations shows that it is not only necessary but also feasible to seek administrative responsibility for environmental risk.Preventive environmental public interest litigation in China should turn to public law litigation based on public law liability,strengthen the risk prevention responsibility of the subject of legal obligations,and cover environmental resource utilization behavior and environmental risk administrative regulation behavior.Logically,when settling preventive environmental public interest litigation,the basic position of environmental risk administrative judgment should be respected,the supervision status of preventive environmental administrative public interest litigation and the available preventative position of civil environmental public interest litigation should be established,risks such as environmental health factors should be considered,the application of interest measurement method should be defined,and the integration of multiple subject litigation rights should be realized.As far as the specific system is concerned,firstly,on the basis of insisting on the litigation nature of public law,the legislative ideas with the nature of public law should be designed,including the legislative mode,risk scope,and procedural rules.Secondly,the preventive environmental administrative public interest litigation should be constructed from four aspects:broadening the sources of case clues,classifying the pre-litigation procedures,clarifying the distribution rules of the burden of proof,and improving the risk identification system,so as to give play to its environmental risk management and supervision function.Thirdly,the preventative environmental civil public interest litigation should be reconstructed by refining the risk identification standards,introducing different ways of pre-litigation procedures,improving the distribution rules of burden of proof,and increasing judicial hearing procedures,so as to realize the optimal application of litigation preventive measures.