法典化背景下地方政府环境职责的纵向划分与规范配置

Vertical Classification and Normative Configuration of Local Governments'Environmental Responsibilities under the Codified Background

地方政府环境职责纵向配置是行政领域“生态环境法典”与地方环境立法实现外部体系协调的重要耦合工具。但统一性法典与多样化地方立法存在协调配置纵向地方政府环境职责的体系化张力,集中体现为职责纵向划分在中央、央地、地方立法中产生的职责不清、职责重复、职责缺位的递进式困境。部门宪法、整体政府、客观诉讼等理论有助于区分地方政府的差异性环境事权,为地方政府环境职责纵向类型划分的完善提供标准指引。应将省、市、县、乡四级政府的环境职责纵向序构为制度建构、综合管理、具体执法三种类型,进而通过“生态环境法典”与地方环境立法协调配置授权、组织及程序规范,合理分配三类纵向职责,加强法典向下引领与地方立法向上兼容的体系协调。

The vertical configuration of local governments'environmental responsibilities is an important coupling tool for the external system coordination between the ecological environment code and local environmental legislation in the administrative field.However,there is a systemic tension between the unified code and the diversified local legislation to allocate the vertical local environmental responsibilities,which leads to the progressive dilemma of unclear responsibilities in central legislation,repeated responsibilities in central and local legislation,and absence of responsibilities in local legislation.The theories of sectoral constitution,holistic government and objective litigation can distinguish the differences of local governments'environmental power and provide guidance for the perfection of vertical classification of local governments'environmental responsibilities.It is suggested that the vertical order of local governments'environmental responsibilities at province-city-county-township level should be divided into three types:system construction,comprehensive management and specific law enforcement.Through the authorization,organization and procedural norms of environmental code-local environmental legislation,the three types of vertical responsibilities are rationally allocated,and the system coordination is strengthened with code downward guidance and local legislation upward compatibility.