生态环境安全的实践困境与法治进路
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D922.68

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国家社会科学基金西部项目"数智时代环境健康风险预警制度研究"(23XFX012);江苏省社会科学基金课题"影子银行失范发展的刑法规制研究"(23FXC007);南京市法学会项目"《江苏省湿地保护研究》修订研究"(NJFX(2022)D04)


Practical dilemma and the rule of law approach forecological environment security
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    摘要:

    建构整体性生态环境安全法治体系是构建"人类命运共同体"和树立"总体国家安全观"的重要内容和关键支撑,其中,以非传统安全为核心的"总体国家安全观"强调国家安全治理应当同等、同步建构生态环境安全等微视、可及领域的基本安全。在国家治理语境中的宏观生态安全与法治语境下的中观生态环境安全应当界定为同义概念,后者与同处法体系内的环境安全、资源安全与生态安全在内涵上相区隔,但在外延上相关联,共同构造出生态环境安全概念在动态和静态双重维度的一般法律解释。反观我国生态环境安全的法治实践,在立法上,包括对于法律概念确立的准确性和解释、法律原则设置的确定性与安排均存在不统一和不一致的情况;在执法上,包括监管制度的建立、监管体系的构建以及监管机制的运行方面都存在一定的瑕疵或漏洞,在面临生态环境治理的本土性、国家性与生态整体性间的冲突之时陷入治理困境。有鉴于此,构建整体性生态环境安全法治体系成为应对治理困境的进路:将生态安全从宏观的战略政策转变为中观的法律规范,明晰法学视域下生态环境安全概念的内涵与外延,确立环境法生态环境安全的基本法律原则,形成"目的—原则—规则"密合的环境法律规范体系,并将生态环境安全原则的法律秩序追求辐射并渗透到相邻部门法中去,成为建构整体性生态环境安全法治体系的奠基石;将关涉生态环境安全中观的法律规范解构成微观的监管制度体系,逐步确立以生态环境标准为核心的预防、管控和治理制度体系,以生态环境数据为承载的监测和预警制度体系,以平台化为形式的沟通和协作制度体系;此外,健全以"生态环境风险"为中轴的预防性民事公益诉讼体系,探索以"生态环境主观(公)权利"为基础的行政诉讼体系,建构以"生态环境法益"为核心的刑事司法体系,成为整体性法治建构的屏障;对于域外、外生性生态环境风险的控制,需要依赖广泛、善意的国际合作和成文、严格的国际规则。这一过程,还应当贯穿法治牵制或抑制科技累卵性,最终满足生态环境乃至经济社会发展的可持续性。

    Abstract:

    The construction of a comprehensive legal system for ecological environment security is an important content and key support for the construction of a human community with a shared future and the establishment of an overall national security concept, in which the overall national security concept, with non-traditional security as the core, emphasizes that national security governance should be equal and synchronous in the construction of basic security in areas such as ecological environment security. The macro ecological security in the context of national governance and the intermediate perspective ecological environment security in the context of the rule of law should be defined as synonymous concepts. The latter is separated from environmental security, resource security and ecological security in the same legal system in connotation, but related in extension, and jointly constructs a general legal interpretation of the concept of ecological environment security in both dynamic and static dimensions. Looking back at the legal practice of ecological environment security in China, there are inconsistencies in legislation, including the accuracy and interpretation of the establishment of legal concepts, the certainty and arrangement of legal principles. In terms of law enforcement, including the establishment of the regulatory system, the construction of the regulatory system, and the operation of the regulatory mechanism, there are certain flaws and loopholes. When faced with the conflict between the localization, nationalization and ecological integrity of ecological environment governance, they are in a governance dilemma. In view of this, building a comprehensive legal system for ecological environmental security has become the approach to address the governance dilemma: transforming ecological security from a macro strategic policy to a medium level legal norm, clarifying the connotation and extension of the concept of ecological environmental security in the legal perspective, establishing the basic legal principles of ecological environmental security in environmental law, and forming an environmental legal norm system that closely combines purpose–principle–rule. And the legal order pursuit of the ecological environment security principle is radiated and infiltrated into the adjacent department law, becoming the cornerstone of construction of the overall ecological environment security rule of law system. Decomposing the legal norms related to ecological environment security into a micro regulatory system, a prevention, control and governance system with ecological environment standards as the core, a monitoring and early warning system with ecological environment data as the carrier, and a communication and collaboration system in the form of a platform should be gradually established. In addition, the preventive civil public interest litigation system with ecological environment risk as the central axis, the administrative litigation system based on ecological environment subjective (public) rights, and a criminal justice system with the ecological environment legal interests as the core should be built which will become barriers to the construction of the overall rule of law. The control of extraterritorial and exogenous ecological environmental risks needs to rely on extensive and goodwill international cooperation and written and strict international rules. This process should also run through the rule of law to contain or inhibit the accumulation of science and technology, and ultimately meet the sustainability of the ecological environment and even economic and social development.

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引用本文

周娴,陈德敏.生态环境安全的实践困境与法治进路[J].重庆大学学报社会科学版,2023,29(6):258-271. DOI:10.11835/j. issn.1008-5831. fx.2022.10.001

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  • 在线发布日期: 2024-01-17
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