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环境执法生态化:生态文明建设的执法机制创新

     

摘要

“Ecologicalized Law Enforcement”implies that the law enforcement body pays much attention to protect-ing the environmental interests during the law enforcement process,particularly implementing the ecological civil thoughts and abiding by the ecological protection ration through the procedures of law enforcement concept,law enforcement orga-nization, law enforcement action and law enforcement tools and technology. Its core meaning can be interpreted as fol-lows:firstly,ecological idea and goal of governmental law enforcement.We should supervise and assess governmental ac-tions both from central government and local governmentby utilizing ecological rantionality,ecological civilization, regard-ing“human-nature-human”and harmonious relation as the ultimate goal of all governments’ action;secondly, the eco-logicalization of power distribution. The power of environment law enforcement is the law enforcement entity supervises and administrates the power for environmental protection,which is its bounden duty. The unit establishment and responsi-bility allocation should consider the relations between the integrity of eco-system and environmental elements,in addition, to note the collaboration among legislation,enforcement and judicial power;thirdly,ecologicalization of law enforcement approach,departments cooperation,regional inter-action and multi-cooperation will be the fundamental request of ecologi-cal law enforcement. At present,China’s environmental law enforcement confronts various difficulties,such as inter-de-pendence,limited law-enforcing means as well as insufficient capacity in environmental law enforcement. Those dilemmas are originated from the inertia of economic thriving which hampers the transition of governmental functions,in addition, traditional cultural factors also constrain environmental law enforcement. To solve these difficulties, it is critical to im-prove the government’s accountability mechanism for environmental quality, accordingly adjust and strengthen environ-mental administrative enforcing power,build and improve multiple ways of environmental law enforcement,intensify the capacity building of grassroots environmental law enforcement.%“执法生态化”是指执法主体在执法过程中更加注重环境利益的保护,在执法理念、执法机构、执法行为和执法手段与技术等行政执法的各个环节都贯彻生态文明思想、遵循生态环保理性的指引。其核心内涵可以理解为:第一,执法理念和目标的生态化。从中央到地方各级政府都应用生态理性、生态文明的理念检视和评判政府行为,将“人—自然—人”和谐关系作为一切政府行为的终极目标;第二,执法权配置生态化。环境执法权是执法部门对环境保护工作行使监督管理权力,也是其应尽的职责,其机构设置和职责分工不仅应充分考虑生态系统的整体性和环境要素之间的关联性,还应注意立法权、执法权、司法权三权之间的协调;第三,执法方式生态化。部门协作、区域联动和多元合作执法方式是执法生态化的基本要求。目前,我国环境执法面临环境执法权不独立、环境执法手段有限、环境执法能力不足等多种困境,已不适应生态文明建设对环境执法的要求。产生这些困境,除立法不完善外,主要原因是经济“一枝独秀”惯性阻碍政府职能转型,传统的文化因素也制约着环境执法。化解这些困境,需要健全政府环境质量责任追究机制、适当整合与强化环境行政执法权、建立健全多元化环境执法方式、加强基层环境执法能力建设。

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