论环境监管权的检察监督

发布时间：2018-05-18 21:12

本文选题：境监管权 + 法律监督权　；参考：《南京大学》2012年博士论文

【摘要】：近年来,随着我国经济社会的快速发展,环境侵害事件层出不穷,严重损害了自然环境和人民群众的身体健康。追根溯源,环境监管权的失范运行是环境侵害事件屡禁不止的主要原因,故加强权力监督、促进环境监管权依法运行已成为我国解决环境问题的根本途径。然而,学术界对环境监管权的内涵、外延及其与环境行政权、环境管理权的界限仍有较大争议,影响了权力监督体系的构建。“法律概念是认识法律与表达法律的认识之网上的纽结”,是法律运行的基础,也是学术研究的前提。笔者以“监管”为起点,对之进行经济学、法学、政治学的多维解读,明确其内涵和外延,进而将环境监管权界定为环境监管机关为保护、促进环境,根据法律规定对可能产生不良环境影响的各种行为、事项进行规制的权力。这一概念体现了经济法的国家干预理念,有利于实现法律概念的系统协调,使之具备了不同于环境行政权、环境管理权的独特优势。西方国家按照孟德斯鸠的“三权分立”理论构建国家政权,通过立法权、行政权、司法权之间的分立制衡来达到权力监督之目的。我国则根据马克思的人民代表机关理论,建立了“议行合一”的人民代表大会制度,立法权在国家权力格局中居于首要地位,其他权力均由立法权派生,其中,以监督法律统一、正确实施为宗旨的检察机关就承担了权力监督的宪政使命。因此,在我国的权力配置框架内,检察机关是监督环境监管权的最佳主体,它所实施是一种程序性的监督,不直接替代环境监管机关而作出任何实体决定,有利于实现权力监督和专业监管之间的平衡。根据管理系统原理,在环境监管体系中嵌入检察监督机制,就使之发挥信息子系统的功能,推动整个环境监管体系进化为一个更高层次的反馈耦合型的系统,从而有效解决监管过程中存在的有限理性、权力寻租等问题,提升环境监管机关的执法水平,补强立法机关的监督能力。而且,在公民环境权对环境监管权依赖性日益加剧的背景下,权力监督能够更好地保障人权。从比较法的视野看,对环境监管权的检察监督为世界各国广泛采用,如美国、德国等环境法制发达国家都建立了较为完备的检察监督机制以规范环境监管权的运行。美国以检察机关来监督环境保护局(EPA)的环境监管行为和环境诉讼行为,并在司法部设立环境犯罪处(ECS)作为办理环境案件的专职机构,行使诉讼提起、催告监督、案件审查等权力,还在全国范围内建立了信息通报、监督协作等机制,以整合检察监督资源。巴西在联邦、州两级检察机关内设立专门机构以处置环境侵害案件,并通过环境公益诉讼、行政调查和行政执法程序监督等方式来监督环境监管权。俄罗斯赋予公民以环境信息知情权、环境决策参与权等权利,赋予检察机关以行政违法诉讼权、消除违法行为提请权等权力,实现对环境监管权的多元化监督。德国则赋予检察官以公益代表人身份,通过参与诉讼的方式实现对环境监管权的监督,并帮助法庭更好地发现和适用法律。“他山之石,可以攻玉。”上述国家环境监管权检察监督的方式、手段、机制等,为我国提供了优质的借鉴样本。检察机关的法律监督权是一项综合性、整体性的权力束。为此,应当立足我国的政权结构,借鉴西方国家的有益经验,针对环境监管权不同的运行状况,充分发挥法律监督权各内设权能的独特功效,构建多元化的权力监督方式,即以法律监督权下属之检察调查权、行政公诉权和检察建议权来实现对环境监管权的监督。检察调查权是法律监督权的题中之义,它以环境监管权的运行状况为调查对象,旨在获取环境执法信息和证据事实,具有鲜明的法律监督属性,是其他两项权力正确行使的前提条件。作为一种结构性权能,检察调查权的创设有利于环境监管风险的规制和法律监督权整体权能的完善,并通过构建环境监管提前介入、行刑衔接、信息披露和交流机制,为之打造高效运行的平台。诉讼实践表明将法律监督权定位于公益诉讼权、支持起诉权、诉讼参与权、行政抗诉权的监督模式,或因权力基础的欠缺,或因监督效果的局限,难以成为环境监管权检察监督的最佳方式。从检察机关的宪法定位和权力性质看,作为强力监督手段的行政公诉权才是法律监督权的直接转化,并与法院审判权一道构成了对环境监管权的监督体系。所以,环境行政公诉明确了检察机关的诉权来源及其作为行政公诉人的法律地位,并厘清了与环境公益诉讼、环境行政公益诉讼之间的关系。在制度设计上,环境行政公诉应当遵循公共利益、诉讼谦抑等基本原则,设置立案监督和诉前督促程序,科学认定因果关系,扩张判决效力,增设预防型诉讼类型,完善举证责任与公诉和解机制,从而提高检察监督的质量和效率。检察建议权作为法律监督权的具体权能,是一项“软权力”,凭借其作用领域的广泛性、监督方式的灵活性,具有自身独特的优势和价值,实现权力监督和专业监管的统一。基于对浙江省环境检察建议运行现状的实证分析可知,环境检察建议在规范环境监管行为方面取得了显著成效,但也存在法律地位不明确、强制力不足、制发不规范等问题。虽然各省级人大常委会出台的关于加强检察机关法律监督工作的决议(决定),在一定程度上提高了环境检察建议的强制力和规范性,而从长远来看,仍需推动检察建议的立法化,明确其地位和性质,完善抄送、备案、跟踪、回复等机制以提升建议的强制力,规范制发的主体、程序、格式、内容等,并赋予被监督机关以救济途径。从发展趋势看,对环境监管权的检察监督是检察机关监督行政权的有益探索,有利于行政法治的推进、宪政结构的优化和环境人权的实现。
[Abstract]:In recent years, with the rapid development of our country's economy and society, environmental infringement events emerge in endlessly, seriously damaging the natural environment and the health of the people. To trace the source, the anomie operation of the environmental supervision power is the main reason for the repeated prohibition of environmental violations. Therefore, it has become me to add strong power supervision and promote the operation of environmental supervision right according to law. However, there are still great disputes on the connotation, extension of the environmental supervision right and the limits of environmental administration and environmental management, which affect the construction of the power supervision system. "The concept of law is the knot on the Internet to recognize the law and the law of expression". It is the basis of the law operation, as well as the foundation of the law operation. On the premise of academic research, the author takes "supervision" as the starting point, carries out a multidimensional interpretation of economics, law and politics, clarifies its connotation and extension, and then defines the environmental supervision right as the environmental regulatory authority to protect, promote the environment, and regulate all the items that may have adverse environmental effects according to the law. This concept embodies the concept of state intervention in economic law, is conducive to the realization of the systematic coordination of the concept of law, and has the unique advantages different from the administrative power of the environment and the right to environmental management.
In accordance with the theory of legislative power, administrative power and judicial power, western countries establish the state power according to the theory of "separation of three powers" by Montesquieu. In accordance with the theory of the people's representative organs of Marx, China has established the system of the people's Congress which is "one of the lines of discussion", and the legislative power is in the state power grid. The bureau is in the primary position, and the other powers are derived from the legislative power. Among them, the procuratorial organs, which supervise the unification of the law and the correct implementation of the procuratorial organs, bear the constitutional mission of power supervision. Therefore, in the framework of power allocation in our country, the procuratorial organ is the best subject to supervise the environmental supervision, and it is implemented as a procedural supervision, Not directly replacing the environmental regulators and making any substantive decisions to achieve the balance between the power supervision and the professional supervision. According to the principles of the management system, the procuratorial supervision mechanism is embedded in the environmental supervision system, making it a function of the information subsystem and promoting the evolution of the whole environmental supervision system into a higher level of feedback. The coupled system can effectively solve the problems of limited rationality, rent-seeking and other problems in the process of supervision, enhance the law enforcement level of the environmental regulators and strengthen the supervision ability of the legislative organs. Moreover, power supervision can better protect human rights under the background of the increasing dependence of citizen environmental rights on environmental supervision power.
From the perspective of comparative law, procuratorial supervision of environmental supervision is widely used in all countries, such as the developed countries such as the United States, Germany and other developed countries, which have established a relatively complete procuratorial supervision mechanism to regulate the operation of environmental supervision power. The United States supervises the environmental supervision and environmental litigation acts of the Environmental Protection Agency (EPA) by the procuratorial organs. In the Ministry of justice, the Department set up the environmental crime Department (ECS) as a full-time agency for environmental cases, exercise the power of litigation, urge supervision and case review, and also set up information bulletin, supervise cooperation and other mechanisms throughout the country, in order to integrate the resources of procuratorial supervision. Brazil has set up special agencies in the federal and state two procuratorial organs to dispose of them. Environmental infringement cases, and supervision of environmental supervision rights through environmental public interest litigation, administrative investigation and supervision of administrative law enforcement procedures. Russia gives citizens the right to know the right to know the information of the environment and the right to participate in the decision-making of the environment, and gives the procuratorial organs the right to take the right of lawsuits against the law and eliminate the right to request the illegal act, so as to realize the environmental supervision. In Germany, the prosecutor is given the identity of the public welfare representative, the supervision of the environmental supervision right is realized by the way of participation in the lawsuit, and the court can help the court to find and apply the law better. A qualitative reference sample.
The legal supervision right of the procuratorial organ is a comprehensive and integral power. For this reason, we should base on the structure of our country, draw on the useful experience of the western countries, and give full play to the unique power efficiency of the power of the legal supervision right in accordance with the different operating conditions of the environmental supervision power, and build a pluralistic way of supervision of power, that is, the law and law supervision. The authority of procuratorial investigation, the right of public prosecution and the right of procuratorial advice to supervise the right of environmental supervision. The right of procuratorial investigation is the meaning of the right of legal supervision. It takes the operation of the environmental supervision right as the object of investigation and aims to obtain the information of environmental law enforcement and evidence. It has a distinct legal supervision attribute, and it is the other two item. As a structural power, the establishment of the procuratorial investigation right is beneficial to the regulation of the risk of environmental supervision and the perfection of the overall power and power of the right of legal supervision, and to create a platform for efficient operation through the construction of environmental supervision in advance, the connection of execution, the disclosure of information and the mechanism of communication.
The practice of litigation shows that it is difficult to become the best way to supervise the supervision of environmental supervision by placing the right of legal supervision on the right of public interest litigation, supporting the right to prosecute, the right to participate in the lawsuit, the supervision mode of the right of administrative protest, or because of the lack of power base, or the limitation of the supervision effect. The power of administrative public prosecution is the direct transformation of the right of legal supervision and the supervision system of the right to environmental supervision with the jurisdiction of the court. Therefore, the environmental administrative public prosecution clearly defines the source of the prosecution's right to appeal and its legal status as a public prosecutor, and clarifies the public interest litigation with the environment and the public interest litigation of the environment. In the system design, the public prosecution of environmental administration should follow the basic principles of public interest and litigation modesty, set up the supervision of the case and the procedure of supervision and urge before the lawsuit, scientifically identify the causation, expand the validity of the judgment, add the type of preventive action, perfect the mechanism of the burden of proof and the public prosecution, so as to improve the quality and efficiency of the procuratorial supervision.
The right of procuratorial suggestion as the specific power of the right of legal supervision is a "soft power", with the flexibility of its field of action, the flexibility of the way of supervision, its own unique advantages and values, and the realization of the unity of power supervision and professional supervision. Based on the empirical analysis of the current status of the environmental inspection proposals in Zhejiang Province, the environmental procuratorate is known. It is suggested that remarkable achievements have been made in Standardizing Environmental Supervision and regulation, but there are also problems such as unclear legal status, lack of force and non standardization. Although the resolution on strengthening the legal supervision of procuratorial organs (decisions) issued by the standing committees of the provincial people's Congress (decision), the coercive force and regulation of environmental procuratorial proposals have been improved to a certain extent. In the long run, it is still necessary to promote the legislation of the procuratorial proposal, to clarify its status and nature, to improve the mechanism of copying, filing, tracking, and reply to improve the coercive force of the proposal, to standardize the subject, procedure, format and content of the system, and to give the supervised organs the remedy.
From the trend of development, procuratorial supervision of environmental supervision is a useful exploration of the supervision of the administrative power of the procuratorial organs, which is beneficial to the promotion of the administrative rule of law, the optimization of the constitutional structure and the realization of the environmental human rights.
【学位授予单位】：南京大学
【学位级别】：博士
【学位授予年份】：2012
【分类号】：D922.68;D926.3

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