生态环境损害赔偿磋商制度法律属性的再识别——以协商行政理论为视角

Re-identification of Legal Attribute of Compensation Consultation System for Ecological Environment Damage——From the Perspective of Consultative Administration Theory

生态环境损害赔偿制度直接救济或者修复受到污染或破坏的生态环境,是实现二十大报告提出的“人与自然和谐共生”的“中国式现代化”的新型环境法律制度。磋商是生态环境损害赔偿诉讼的前置程序,囿于现有法律及政策对磋商制度法律属性的规范遗漏,磋商制度在实践中存在检察机关参与磋商的功能定位不统一、磋商程序的启动规则不同一、磋商协议是否公示各地方存在较大差异等诸多问题,学理上亦存在私法属性论和公法属性论单一解释路径下的二元分歧,无法完整勾勒生态环境损害赔偿磋商制度的全貌。协商行政理论主张公私法协力治理,通过平等协商手段实现环境行政目标,为磋商制度法律属性的再识别提供了全新且适当的研究视角和理论框架。基于协商行政理论的基本要旨,磋商制度的法律属性宜定性为以垂直关系为基础的平等协商制度,磋商行为是行政机关实现生态环境公共利益保护之公法义务的协商行政行为。磋商制度法律属性重新识别之下,磋商实践中的既存问题便可得以有效消解。

The compensation system for ecological environment damage directly relieves or restores the polluted or damaged ecological environment,which is a new environmental legal system to realize the“Chinese-style modernization”of“harmonious coexistence between man and nature”proposed by the report of the 20th National Congress of the CPC.The consultation system is the prepositive procedure of ecological environment compensation lawsuit,which is constrained by the omission of existing laws and policies to regulate the legal nature of negotiation.In practice,the consultation system has many problems,such as the different functional positioning of the procuratorate in participating in the consultation,different initiating rules of the consultation procedure,and large difference in whether the consultation agreement is publicized and so on.In theory,there are also dualistic differences under the single interpretation path of the private law attribute theory or public law attribute theory,which can not completely outline the whole picture of the compensation consultation system of ecological environment damage.The theory of consultative administration advocates the joint governance of public and private law to achieve environmental administrative goals through equal consultation means,which provides a new and appropriate research perspective and theoretical framework for the re-identification of the legal attributes of the consultation system.Based on the essence of the theory of consultative administration,the legal attribute of consultation system should be defined as the equal consultation system based on vertical relationship.The consultation behavior is the consultative administration behavior that the administrative organ realizes the public obligation to protect the public interest of ecological environment.Under the re-identification of the legal nature of the consultation system,the existing problems in the consultation practice can be effectively resolved.