生态环境损害赔偿制度的规范协同模式

Construction of Standardized Coordination Pattern of Compensation System for the Damage to the Ecosystem

现行法上生态环境损害赔偿制度体系的规范布局呈现私益救济和公益救济彼此区隔并行,遵循“行政前置、司法殿后”的顺位式救济模式,行政机关、社会组织、检察机关等多元诉权主体各具异质化代表资格。这一面向生态环境损害赔偿问题的规范交叠和制度竞争局面衍生了公共性生态环境法益与个体性私人财产权在实物恢复型救济中的交叠重复保护、行政程序相对于司法程序在救济顺位上的无差别僵化前置、行政机关提起生态环境损害赔偿诉讼的代表权规范基础模糊等制度困局。为纾解上述制度运行中的非协同化问题,应从赔偿范围审查、恢复原状责任的适用干预等方面构建私益诉讼和公益诉讼的衔接机制;以是否有必要进行法律判断为标准,增设生态环境损害赔偿“行政前置”的限定条件;在合理界分行政监管权和损害赔偿请求权的基础上,结合自然资源统一确权登记成果,确定自然资源国家所有权的代表行使主体为赔偿权利人,以此构建生态环境损害赔偿制度的规范协同规制模式。

In terms of current law,the standardized layout of the compensation system for the damage to the ecosystem shows that private interest relief and public interest relief are separate but parallel,follows the cis-position multi-relief model of“administrative remedies go first before judicial ones”,and the multiple right of prosecution main bodies such as administrative agencies,social organizations,and procuratorial agencies have the characteristics of heterogeneous representative qualification system operation.The situation of overlapping regulations and system competition that facing the issue of ecological and environmental damage compensation leads to the following problems:overlapping and repeated protection of public ecological environmental legal interest and individual private property rights in physical restoration relief;the indiscriminate and rigid preposition of administrative procedures relative to the judicial procedure in relief cis-position;and the system dilemma such as the vague standard basis of representation rights for administrative agencies to file ecological and environmental damage compensation litigations.To solve these problems,it is necessary to establish a connection mechanism between private interest litigation and public interest litigation from the aspects of the examination of compensation scope and the intervention of the application of the restitution responsibility and it is also necessary to add the“administrative pre-position”based on whether it is necessary to make legal judgments as the standard.Based on the reasonable division of administrative supervision power and claim of compensation for damage,and combined with the registration results of unified confirmation of natural resources,it is determined that the representative exercising subject of national ownership of natural resources is the right holder of compensation.On that basis,a standardized and coordinated model of the compensation system for the damage to the ecosystem is constructed.