环境治理体系中的多元规范及其协同机制--基于环境行政处罚制度的分析

Multidimensional norms and their collaborative mechanisms in environmental governance system:Analysis of the environmental administrative penalty system

现代环境治理,首先表现为规范体系的治理。当前,我国环境治理领域总体上存在着国家法律、党内法规、行政规范性文件、党的规范性文件等多种规范类型,形成了“多元规范共存、多元秩序共治”的运行模式。现有学术研讨的一个重要贡献,是承认并高度重视生态环境领域所存在的多元规范现象,并尝试将其纳入已被提上立法议程的生态环境法典之中。但是,此种研究进路较为宏观抽象,难以深入触及我国环境治理体系中所出现的环境行政执法变革等前沿议题。从实践情况看,我国环境治理中的多元规范体系与多元秩序结构已然产生抵牾和龃龉,其在环境行政处罚领域呈现较为明显与突出。现阶段,我国环境行政处罚制度探索的困局主要包括:生态环境领域“免予处罚”的混沌实践、行政处罚异化为生态环境损害赔偿责任追究的前置要件,以及垂直管理改革背景下环境执法力量的错位配置。从多元规范视角出发,运用“发生学方法”分析发现,上述实践难题均源于现代环境治理体系中非国家法律类规范之变动而产生的多元规范不协同问题,具体包括规范性文件(行政规范性文件、党的规范性文件)相互间的冲突,以及党的政策与国家法律相互间的差异。从法理上考量,当前我国环境行政处罚制度探索暴露出的系列问题及内在冲突,不能简单根据“问题—对策”式思路来加以应对,而需从“事理”上升为“法理”,揭示其中所蕴含的一般规律和普遍矛盾(即环境治理体系中多元规范的相互关系问题)。鉴此,未来我国应当立基于多元规范协同互动的理论和方法,重点完善生态环境领域相关规范性文件的备案审查机制,建立健全生态环境领域党的政策与国家法律的统筹协调机制,同时借助生态环境法典编纂之契机确认多元规范的相互关系规则,以提升我国环境治理体系和治理能力的现代化。

Modern environmental governance first manifests as the governance of a standardized system.Currently,there are various types of norms in the field of environmental governance in China,including national laws,Party regulations,administrative normative documents,and Party normative documents,forming an operational model of"coexistence of multiple norms and governance of multiple orders".An important contribution of existing academic discussions is to recognize and attach great importance to the diverse normative phenomena in the field of ecological environment,and attempt to incorporate them into the ecological environment code that has been put on the legislative agenda.However,this research approach is relatively macro,abstract,and difficult to delve into cutting-edge issues such as environmental administrative law enforcement reform that have emerged in China’s environmental governance system.From a practical perspective,there have been conflicts and contradictions among the diverse normative system and the diverse order structure in China’s environmental governance system,which are particularly evident and prominent in the field of environmental administrative penalties.At present,the difficulties in exploring the environmental administrative penalty system in China mainly include:the chaotic practice of“exemption from punishment”in the field of ecological environment,the alienation of administrative penalties as a prerequisite for holding ecological environment damage compensation responsibility,and the misallocation of environmental law enforcement forces under the background of vertical management reform.From the perspective of multiple norms,using the genetic method analysis,it is found that the above practical difficulties all stem from the problem of no coordination of multiple norms caused by changes in non-state legal norms in modern environmental governance system,including the conflict between normative documents(administrative normative documents,Party normative documents),as well as the differences between Party policies and national laws.From a legal perspective,the series of problems and internal conflicts exposed in the current exploration of China’s environmental administrative penalty system cannot be simply addressed through a problem-countermeasure approach,but need to be elevated from reason-based to legal-based,revealing the general rules and universal contradictions contained therein(i.e.the interrelationships between multiple norms in the environmental governance system).In view of this,in the future,China should establish a theory and method based on the collaborative interaction of multiple norms,focus on improving the filing and review mechanism of relevant normative documents in the field of ecological environment,establish a sound coordination mechanism between Party policies and national laws in the field of ecological environment,and take advantage of the opportunity of the compilation of the ecological environment code to confirm the interrelationship rules of multiple norms,to enhance the modernization of China’s environmental governance system and governance capacity.