海洋生态环境损害政府索赔的诉权基础:反思与重塑

The Basis of Governmental Litigation Right in Marine Ecological Environment Damage:Reflection and Reconstruction

海洋生态环境损害政府索赔制度虽然已确立,但对其性质的认识并未统一。综合学界观点,发现分歧核心在于诉权基础的差异,而这种差异实质源于海域国家所有权私权化视角与海洋环境公益保护属性的矛盾。对相关论述进行分析后认为,海域国家所有权并非一种私法所有权,而是一种明示的公共财产权体制,其将海洋这种环境公共物品视为公共财产并防止其成为私法交易的对象,实质赋予国家的是以保护公共利益为中心的公权力。相似地,领海外国家管辖海域基于环境管制为公众保留了享有良好环境的公共利益,使海洋生态环境脱离自由获取,确立了一种隐含的公共财产权。因此,海洋生态环境损害政府索赔是一种基于财产权的救济思路,其将海洋生态环境视作“公产”,政府基于对公共财产保护和管理的公权力诉请救济,是一种公益属性的“公产诉讼”。在功能上海洋生态环境损害赔偿诉讼强调以“损害赔偿”完成生态修复,在诉讼顺位上应优先于环境民事公益诉讼。同时,海洋生态环境损害赔偿诉讼需实现与行政执法的衔接,完善诉讼前置程序,明确行政先于司法的救济顺位。

Although the government compensation system for marine ecological environment damage has been established,the understanding of its nature is not unified.Synthesizing the viewpoints of academic circles,it is found that the core of the difference lies in the difference in the basis of litigation rights,and this difference is essentially due to the contradiction between the perspective of privatization of sea state ownership and the nature of marine environmental public welfare protection.After analyzing the relevant discourses,it is believed that the national ownership of maritime areas is not private law ownership,but an explicit public property right system.This system treats the sea,an environmental public good,as public property and prevents it from becoming the object of private law transactions,essentially vesting the state with authority centered on protecting the public interest.Similarly,the sea area under the jurisdiction of the state outside the territorial waters retains the public interest of enjoying a good environment based on environmental control,which separates the marine ecological environment from the freedom of the commons and establishes an implicit public property right.Therefore,the government's claim for damages to the marine ecological environment is based on property rights,and it regards the marine ecological environment as“public property”rather than“private property”.The government filed“public property litigation”based on the management of the public property.In terms of function,marine ecological and environmental damages litigation emphasizes“damage compensation”to complete ecological restoration,which should take precedence over environmental civil public interest litigation in the litigation order.At the same time,marine ecological environment damage compensation litigation needs to realize the connection with administrative law enforcement,improve the pre-litigation procedures,and clarify the priority of the administration.