生态环境损害担责之民事责任认定
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摘要
生态环境损害赔偿制度的建立是全面落实损害担责原则的必然要求。生态环境损害担责的民事责任认定,直接关系到生态环境损害赔偿制度的有效实施。目前学术界对生态环境损害侵犯的权益性质存在争论,部分学者认为属于"国益"。但从概念范畴、法律界定、利益诉求等角度深入分析发现,生态环境损害侵犯的权益属性应为"公益"。《生态环境损害赔偿制度改革方案》中对生态环境损害赔偿责任的性质界定不明,有关"赔偿磋商"与"修复生态环境"的规定呈现出一种民事责任与行政管理的交织。厘清上述基本概念,辨明生态环境损害担责之责任属性,直接关系到生态环境损害赔偿制度的有效推进与实践效果。生态环境损害赔偿责任应属民事责任。"赔偿磋商"的本质是民事行为。"修复生态环境"是特殊的环境民事责任承担形式。生态环境损害赔偿诉讼是一种特殊的环境民事公益诉讼。在生态环境损害赔偿与环境公益诉讼的衔接问题上,应注意起诉主体顺位的设置。生态环境损害赔偿民事公益诉讼的起诉主体顺位依次为:符合条件的社会组织、赔偿权利人及其指定的部门、人民检察院。其中,作为赔偿权利人的"政府机关"应当在第一顺位的社会组织起诉时,予以"支持起诉"。
The establishment of compensation system for ecological and environmental damage is a necessary requirement for implementing damage liability principles. The determination of civil liability in ecological damage liability principles is directly related to the effective implementation of ecological compensation system. There is a debate in academic circles about the nature of the infringement of rights and interests in ecological compensation system. Some scholars believe that it belongs to a national interest. However, through in-depth analysis on the concept, legal definitions and interests,we find that it belongs to a public interest. There is an unclear concept on the nature of liability for ecological damages in Reform Plan of Compensation System for Ecological and Environmental Damage. Some concepts appear in interweaving with a civil liability and an administrative behavior,such as"Compensation Negotiation " and "Ecological Restoration ". Identifying above concepts helps to push the ecological and environmental damage system forward.Ecological and environmental damage liability is a civil liability. Compensation negotiation is a civil act. Ecological restoration is a special environmental civil liability. A lawsuit for damage to the ecological environment is a kind of special environmental civil public interest litigation. The coherence of the ecological and environmental damage system and the environmental public interest litigation should be noticed,especially for the setting of the subject sequence of prosecution. In a civil public interest litigation concerning compensation for ecological and environmental damage,the order of the subject of prosecution is the qualified social organizations,the right-holders of compensation and its designated departments,and the people 's procuratorate. As the right holder of compensation,the government authority should support the prosecution when social organizations sue.
The establishment of compensation system for ecological and environmental damage is a necessary requirement for implementing damage liability principles. The determination of civil liability in ecological damage liability principles is directly related to the effective implementation of ecological compensation system. There is a debate in academic circles about the nature of the infringement of rights and interests in ecological compensation system. Some scholars believe that it belongs to a national interest. However, through in-depth analysis on the concept, legal definitions and interests,we find that it belongs to a public interest. There is an unclear concept on the nature of liability for ecological damages in Reform Plan of Compensation System for Ecological and Environmental Damage. Some concepts appear in interweaving with a civil liability and an administrative behavior,such as"Compensation Negotiation " and "Ecological Restoration ". Identifying above concepts helps to push the ecological and environmental damage system forward.Ecological and environmental damage liability is a civil liability. Compensation negotiation is a civil act. Ecological restoration is a special environmental civil liability. A lawsuit for damage to the ecological environment is a kind of special environmental civil public interest litigation. The coherence of the ecological and environmental damage system and the environmental public interest litigation should be noticed,especially for the setting of the subject sequence of prosecution. In a civil public interest litigation concerning compensation for ecological and environmental damage,the order of the subject of prosecution is the qualified social organizations,the right-holders of compensation and its designated departments,and the people 's procuratorate. As the right holder of compensation,the government authority should support the prosecution when social organizations sue.
引文
[1]周珂,杨子蛟.论环境侵权损害填补综合协调机制[J].法学评论,2003,(6):113.
[2]吕忠梅.生态环境损害赔偿诉讼中的问题与对策[C].最高人民法院“创新环境资源司法理论加强生态文明建设司法保障研讨会”,2017-12-28.
[3]李昌麒.经济法学[M].北京:中国政法大学出版社,2002.62.
[4][英]洛克.政府论·下篇[M].北京:商务印书馆,2008.68.
[5]高志宏.公共利益的独立性及当代表达[J].学术界,2013,(11):198.
[6]江必新,杨科雄.论公共利益[J].甘肃行政学院学报,2007,(4):20.
[7]陈新民.德国公法学基础理论[M].山东:山东人民出版社,2001.185.
[8]竺效.论环境民事公益诉讼救济的实体公益[J].中国人民大学学报,2016,(2).
[9]黄锡生,韩英夫.生态损害赔偿磋商制度的解释论分析[J].政法论丛,2017,(1):16.
[10]李挚萍.生态环境修复责任法律性质辨析[J].中国地质大学学报·社会科学版,2018,(3):54.
[11]吕忠梅.论环境物权[J].人大法律评论,2001,(1).
[12]叶俊荣.环境问题的制度因应[A].环境政策与法律[C].北京:中国政法大学出版社,2004.136-142.
[13]侯佳儒.生态环境损害的赔偿、移转与预防:从私法到公法[J].法学论坛,2017,(3):23.
[14]阿马蒂亚·森.任赜,于真译.以自由看待发展[M].北京:中国人民大学出版社,2012.30-33.
[15]刘倩.生态环境损害赔偿:概念界定、理论基础与制度框架[J].中国环境管理,2017,(1):101.
[16]韩德培,陈汉光.环境保护法教程·第七版[M].北京:法律出版社,2015.321.
[17]程多威,王灿发.论生态环境损害赔偿制度与环境公益诉讼的衔接[J].环境保护,2016,(2):42.
[18]黄娜,杜家明.社会组织参与环境公益诉讼的优化路径[J].河北法学,2018,(9):191.
(1)依据《侵权责任法》第2条的规定:“侵害民事权益,应当依照本法承担侵权责任。本法所称民事权益,包括生命权……等人身、财产权益”,这里显然不包括环境自身的权益。
(2)见环保部《环境损害鉴定评估推荐方法(第II版)》有关“环境损害”的解释。
(3)《生态环境损害赔偿制度改革方案》所称的“生态环境损害”是指因污染环境、破坏生态造成大气、地表水、地下水、土壤、森林等环境要素和植物、动物、微生物等生物要素的不利改变,以及上述要素构成的生态系统功能退化。
(1)过分强调国家利益可能产生暂时有利国家,却有损公共利益的情形,如不适当的扩大积累、增加货币发行、擅自扩大征税、加重税负等。
(2)德国学者F-J.Neumann1886年有关“公私法中关于税捐制度、公益征收之公益的区别”论述中提及。
(3)参见《宪法》第9条。
(1)参见《宪法》第10条。
[2]吕忠梅.生态环境损害赔偿诉讼中的问题与对策[C].最高人民法院“创新环境资源司法理论加强生态文明建设司法保障研讨会”,2017-12-28.
[3]李昌麒.经济法学[M].北京:中国政法大学出版社,2002.62.
[4][英]洛克.政府论·下篇[M].北京:商务印书馆,2008.68.
[5]高志宏.公共利益的独立性及当代表达[J].学术界,2013,(11):198.
[6]江必新,杨科雄.论公共利益[J].甘肃行政学院学报,2007,(4):20.
[7]陈新民.德国公法学基础理论[M].山东:山东人民出版社,2001.185.
[8]竺效.论环境民事公益诉讼救济的实体公益[J].中国人民大学学报,2016,(2).
[9]黄锡生,韩英夫.生态损害赔偿磋商制度的解释论分析[J].政法论丛,2017,(1):16.
[10]李挚萍.生态环境修复责任法律性质辨析[J].中国地质大学学报·社会科学版,2018,(3):54.
[11]吕忠梅.论环境物权[J].人大法律评论,2001,(1).
[12]叶俊荣.环境问题的制度因应[A].环境政策与法律[C].北京:中国政法大学出版社,2004.136-142.
[13]侯佳儒.生态环境损害的赔偿、移转与预防:从私法到公法[J].法学论坛,2017,(3):23.
[14]阿马蒂亚·森.任赜,于真译.以自由看待发展[M].北京:中国人民大学出版社,2012.30-33.
[15]刘倩.生态环境损害赔偿:概念界定、理论基础与制度框架[J].中国环境管理,2017,(1):101.
[16]韩德培,陈汉光.环境保护法教程·第七版[M].北京:法律出版社,2015.321.
[17]程多威,王灿发.论生态环境损害赔偿制度与环境公益诉讼的衔接[J].环境保护,2016,(2):42.
[18]黄娜,杜家明.社会组织参与环境公益诉讼的优化路径[J].河北法学,2018,(9):191.
(1)依据《侵权责任法》第2条的规定:“侵害民事权益,应当依照本法承担侵权责任。本法所称民事权益,包括生命权……等人身、财产权益”,这里显然不包括环境自身的权益。
(2)见环保部《环境损害鉴定评估推荐方法(第II版)》有关“环境损害”的解释。
(3)《生态环境损害赔偿制度改革方案》所称的“生态环境损害”是指因污染环境、破坏生态造成大气、地表水、地下水、土壤、森林等环境要素和植物、动物、微生物等生物要素的不利改变,以及上述要素构成的生态系统功能退化。
(1)过分强调国家利益可能产生暂时有利国家,却有损公共利益的情形,如不适当的扩大积累、增加货币发行、擅自扩大征税、加重税负等。
(2)德国学者F-J.Neumann1886年有关“公私法中关于税捐制度、公益征收之公益的区别”论述中提及。
(3)参见《宪法》第9条。
(1)参见《宪法》第10条。