重归平衡:环保垂改的制度逻辑及其组织法创新

Back to Balance:the Institutional Logic of the Vertical Reform of Environment Protection and Innovation of Its Organic Law

深化环保垂改的关键在于处理好纠正地方保护主义与压实地方主体责任之间的矛盾。这个矛盾须置于环境职权配置的制度逻辑中求解,围绕相关组织法机制展开制度创新。以职权配置过程中的“约束性目标—形成性目标”这一平衡框架来看,要防止地方保护主义应当着眼于强化约束性目标,环保垂改正是尝试通过执法权的上收和监督权的强化达成此任务;压实地方主体责任则应当对形成性目标进行优化,当前生态环境领域内的其他相关改革通过层级任务的重构初步优化了形成性目标。行政组织法应对层级任务的重构进行系统回应,对任务划分、组织保障和权责归属等事项梯次明确。为此,需要以环境事权的界分来优化治理任务的配置,以组织模式的界定来回应治理任务的需求,以权责清单的建构来增进行政任务的体系化,从而构建一套分工清晰、权责适配的环境治理推进模式。

The key to carry out a deep vertical reform of environment protection lies in a proper handling of the contradiction between local protectionism and making local governments fulfill their responsibilities.Such contradiction can only be resolved by placing it in the institutional logic of environ⁃mental power allocation,and by innovating the organic law related to it.In consideration of the bal⁃anced framework of“restrictive goal vs formative goal”in power allocation,emphasis must be placed on strengthening the“restrictive goal”in order to prevent local protectionism.It is for this purpose that the vertical reform aims to reallocate enforcement power and strengthen supervision power.Responsibilities of the local governments should be optimized according to the formative goal.Such opti⁃mization is done by restructuring the hierarchical tasks in the on-going environment protection reforms.The organic law should respond to such restructuring by clarifying task division,providing organiza⁃tional guarantee and reallocating power and responsibilities.To achieve this end,environment governance power should be redivided to optimize the allocation of governance tasks,responses to the de⁃mands for fulfilling such tasks should be achieved through organizational models,and administrative tasks should be systematized through a listing of relevant power and responsibilities so that a environment protection model featuring a clear division of labor and a clear definition of power and responsibil⁃ities can be developed.