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      欄目導航    網站首頁 > 右側欄目 > 新環境保護法 > 最新動態
    發表日期:2014年06月17日

     

    新環保法讓法律長出“爪”與“牙

    來源:經濟參考報  時間:2014528

     

    此次《環境保護法》的修訂授予了環境保護和其他負有環境保護監督管理職責的部門對違法排污設備的查封、扣押權,這對及時解決環境污染和生態破壞的違法問題意義重大。

    規定行政拘留措施,設立引咎辭職制度,規定按日計罰的措施,讓《環境保護法》長出能制裁違法行為的

    此次修訂《環境保護法》,增設信息公開與公眾參與一章,設立了環境公益訴訟制度,是中國環境保護法治史上一項重要改革舉措。

    20144月,第十二屆全國人大常委會第八次會議審議通過了《環境保護法》修訂草案,這是該法頒布實施25年以來的首次大修。

    此次《環境保護法》呈現諸多亮點,其中關于加強環境執法、嚴格法律責任和鼓勵公眾參與的內容,加強了環境法規則的實在性,發揮了環境法作用的實效性,尤其令人關注。

    設立強制措施  提高環境執法的有效性

    如今,區域性的大氣污染、流域性的水污染和全國性的土壤污染等環境問題之所以如此嚴重,其原因在很大的程度上是環保部門和其他的一些監管部門的監管不力所致,而造成監管不力的主要原因則在于立法所授予的監管措施強制力不夠。

    為此,此次《環境保護法》的修訂授予了環境保護和其他負有環境保護監督管理職責的部門對違法排污設備的查封、扣押權,這對及時解決環境污染和生態破壞的違法問題意義重大。

    此外,為了保證監管的實效性,此次《環境保護法》的修訂提出了一些協同監管的信用管理措施,譬如對于環境污染企業,供水部門可停止供水,土地管理部門可禁止向其提供土地,銀行則不得給予其授信,進出口管理部門不得給予其出口配額,證券監管部門可限制其上市或已經上市的證券不得繼續融資等。上述一系列措施將有利于促進企業實行綠色生產、清潔生產,有利于地區經濟結構的大調整,有利于我國生態文明的建設。

    此外,對部分只重經濟增長而忽視環境保護的地方政府,此次《環境保護法》的修訂鞏固了《水污染防治法》的立法經驗,規定了區域審批的措施,即對那些環境污染嚴重的地區,可以暫停審批其環境影響報告書,限制其進一步的發展;并規定未做規劃環評的,不得建設。用限制發展的措施倒逼地方政府解決區域性的環境問題,倒逼相關企業解決其企業內部的環境問題。

    嚴格行政責任 強化法律的制裁效果

    為了促使企業守法,讓《環境保護法》長出能制裁違法行為的。此次《環境保護法》的修訂,還作出如下行政法律責任的創新:

    一是,規定行政拘留措施。

    如建設項目未依法進行環境影響評價,被責令停止建設,拒不執行的,其負責人將會予以拘留;對于違反法律規定,未取得排污許可證排放污染物,被責令停止排污,拒不執行的,對其負責人及相關責任人予以行政拘留;對于通過暗管、滲井、滲坑、灌注或者篡改、偽造監測數據,或者不正常運行防治污染設施等逃避監管的方式違法排放污染物的,對企業責任人予以行政拘留;對于生產、使用國家明令禁止生產、使用的農藥,被責令改正,拒不改正的,對企業責任人予以行政拘留。行政拘留措施的采用具有極大的震懾力,對那些推卸責任的企業將起到有效的威懾作用。

    二是,針對發生重大環境違法事件的地方政府及環境監管機關的主要領導,設立引咎辭職制度。

    出現如下情況,主要負責人應當引咎辭職:因監管缺位、越位、不到位以及其他一些環境行政違法行為,如不符合行政許可條件準予行政許可的;對環境違法行為進行包庇的;依法應當作出責令停業、關閉的決定而未作出的;對超標排放污染物、采用逃避監管的方式排放污染物、造成環境事故以及不落實生態保護措施造成生態破壞等行為,發現或者接到舉報未及時查處的;違反本法規定,查封、扣押企業事業單位和其他生產經營者的設施、設備的;篡改、偽造或者指使篡改、偽造監測數據的;應當依法公開環境信息而未公開的;將征收的排污費截留、擠占或者挪作他用的等。設立引咎辭職制度,通過與地方政府及環境監管機關的主要領導政治前途掛鉤的作法,可以促使其忠實地履行法律規定的職責。

    三是對企業規定了按日計罰的措施。

    即對那些責令其限期整改卻屢教不改的企業,從責令整改之日起開始按日計算罰款,并且鼓勵各地方按照其地方實際設定罰款數額。這種嚴厲的制裁措施有利于遏制那些心存僥幸的企業的僥幸心理,并解決違法成本低而守法成本高的問題,做到原則性與靈活性的有效結合。

    加強公民參與  發揮社會的參與和監督作用

    法治社會應當是一個充分發揮公眾監督作用的社會。只有加強社會與市場參與和監督的渠道建設,建立有序參與、表達、申訴和監督的制度和機制,吸納他們共同操持國家事務,才能使公眾身臨其境地理解國家和社會建設的難處,才能形成國家的法治文化和氛圍,才能化公眾的不滿與不合作為積極的參與和合作。

    從政府能力上看,環境保護需要常態性監管,而政府監管力量發現環境違法行為是具有偶然性的,受制于視野有限的不足。相對于廣泛的違法行為而言,政府因為力量不足經常出現現場監管缺位的現象,對所發現的違法行為作出處罰,具有個別性和偶然性的特點,不能全面、有效地打擊違法行為。而在絕大多數場合,社會公眾監督資源非常豐富,他們的發現與監督力量是常態存在的。

    由于1989年的《環境保護法》過分強調行政力量的管控作用而忽視公眾自發的常態性發現與監督力量,導致環境保護中的釣魚執法、選擇執法、尋租式執法、非文明執法、限制式執法、運動式執法、疲軟式執法、滯后式執法等執法方式越演越烈。最終,執法不公、執法缺位等問題層出不窮,環境法律規范的實施走了調,變了樣,環境法作為一個部門法所具有的獨立功能也沒有得到有效地發揮。

    此次修訂《環境保護法》,在公民參與和監督方面有了很大的加強。在立法結構方面,增設了信息公開與公眾參與一章,并具體規定了建立公眾與政府、公眾與企業的互動機制。

    此外,為了實現保證公民參與的有效性,督促地方政府依法履責,擯棄地方保護主義的目的,此次修訂還設立了環境公益訴訟制度,即對環境監管機關的環境保護履職缺位、越位和不到位,污染環境、破壞生態,損害社會公共利益的,對生產經營單位的環境污染和生態破壞行為,在設區的市級以上民政部門依法登記的相關社會組織(如從事環境保護工作滿五年且信譽良好)就可以向人民法院提起環境公益訴訟。此項制度的設立,將對保護區域和流域環境起著相當重要的作用,是中國環境保護法治史上一項重要改革舉措。

      (常紀文:國務院發展研究中心資源與環境政策研究所)

     

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