论非法定环保问责制度的法治化完善——兼论制度转换为法律的条件

On the Perfection of Non-statutory accountability system for environmental protection: on the Conditions for the Conversion of policy into Law

《环境保护法》修订实施后,地方政府环保责任受到从中央到地方、政府内部到社会公众的全面关注。为了追究地方政府环保责任,在环境法律之外,中央与地方出台文件规定了多种环保问责制度。环保问责制度的法治化首先面临是否予以法律化的问题。而一项制度(或政策)上升为法律,需要具备制度普遍性、客观性、稳定性的内部条件与完善的配套制度、坚实的实践基础以及良好的法律修订时机等外部条件。生态环境领域按日计罚制度与生态补偿制度的法律化经验也进一步验证了这些理论条件。据此,现有的非法定问责制度并非全部具备法律化的条件,部分问责制度无需进行法律化,通过行政法规、部门规章等予以完善即可;而部分问责制度已经具备法律化的内部条件,还需通过进一步实践检验与配套制度的完善才能予以法律化。

The first thing of the legalization of environmental accountability system is whether it is necessary to transform the system into law.To upgrade a system(or policy)to law,it is necessary to have the internal conditions of universality,objectivity and stability of the system,and the external conditions including perfect supporting system,solid practical foundation and good opportunity for law revision.These theoretical conditions are further validated by the experience that the daily penalty system and the ecological compensation system have been upgraded to law in the field of environment.Accordingly,the existing non-statutory accountability system does not all have the conditions to be transformed into law.Some accountability systems need not be transformed into laws,and can be perfected through administrative regulations and departmental rules.Other accountability systems already have the internal conditions of legalization,but need to be further tested by practice and improve the supporting system before they can be upgraded to law.