环境行政处罚修复功能之补强——基于130起“长江采矿案”的样本分析

Strengthening the Restoration Function of Environmental Administrative Penalty:Based on the Sample Analysis of 130"Yangtze River Mining Cases"

行政处罚之惩罚功能不足以应对环境问题,需对其修复功能进行系统性补强。对130份涉长江流域非法采矿行政处罚决定书的分析表明:体现生态修复功能的文书仅占全部案例的7.8%,远低于罚款97%、没收违法所得63%、没收非法财物30%的适用比率。行政处罚中存在修复措施适用率低、决定书中未载明修复方式和标准、处罚裁量之修复导向不足等问题,成因在于生态修复责任法律性质不清、生态修复具体规则缺失、生态修复行政责任设计欠佳。补强环境行政处罚修复功能的路径:①明确生态修复中行政机关的主导作用;②在环境行政处罚种类中增设生态修复,制定《生态环境修复办法》,并明确处罚决定书中应载明修复效果验收标准;③建立基于生态修复效果的罚款裁量基准,并将修复作为罚款减免之依据,完善公众监督修复效果的参与机制。

The punishment function of administrative penalty is not enough to deal with environmental problems,and its restoration function should be systematically strengthened.The analysis of 130 administrative penalty decisions related to illegal mining in the Yangtze River Basin shows that the documents reflecting the eco-restoration function only account for 7.8%of all cases,far lower than the applicable rates of fines of 97%,confiscation of illegal income of 63%,confiscation of illegal property of 30%.There are some problems in the administrative penalty,such as low application rate of restoration measures,lack of restoration methods and standards in the written decision,and insufficient restoration guidance of punishment discretion;the reason is that the legal nature of eco-restoration responsibility is unclear,the methods and standards of repair are not specified in the decision,the administrative responsibility for eco-restoration is poorly designed.The ways to strengthen the restoration function of environmental administrative penalty are as follows:①to clarify the leading role of administrative organs in eco-restoration;②to add eco-restoration to the types of environmental administrative penalties,formulate Measures for Eco-environmental Restoration,and make it clear that the acceptance standard of restoration effect should be specified in the written punishment decision;③to establish a fine discretion benchmark based on the eco-restoration effect,and take the restoration as the basis of fine reduction,improve the public supervision of the restoration effect participation mechanism.