对修改《大气污染防治法》着力点的思考

从2013年到2016年我国大气污染防治所取得的巨大成就不能用来说明2015年修订通过的《大气污染防治法》为防治大气污染发挥了巨大的作用。那些成就主要是由以《重点区域大气污染防治"十二五"规划》《大气污染防治行动计划》为标志的政府防治大气污染的行动取得的。《大气污染防治法》(2015)的加"严"修订主要表现在:罚则条款数量增加;违法行为种类增加;责任类型增多;多处设定"惩罚束";设定阶梯式处罚;创设身份罚新形式,多处设定机能罚等方面。那些加"严"修订都服务于实现"行为人不违反"这个规制目标。以往的研究成果表明,使"行为人不违反"的法律不能保证使环境达到一定的质量目标。近年我国政府环境保护举措取得成功的秘诀主要有三点,即:(1)减少绝对排放量;(2)政府负责,而不是行政相对人负责;(3)用权力推行,而不是用设惩罚"威胁"行政相使之守法的方式寻求大气污染防治目标的实现。要让大气污染防治法成为我国防治大气污染的基本依据和有效防治大气污染的保障,必须对新修订的《大气污染防治法》再行修订。新的修订应当以政府的大气污染防治行为为着力点。这样的修订主要应当考虑:建立大气质量目标制度;健全总行为控制制度;按照大气污染防治的需要明确对各级政府、地方权力机关的授权;规定政府或其职能部门的职责和相关行政权运行的约束程序。在对《大气污染防治法》实施了以"政府的大气污染防治行为"为着重点的修改之后,国家将取得法治国家建设和大气污染防治法制建设的双重收获。

Thoughts on the focus of revising the atmospheric pollution prevention and control law of the People's Republic of China

From 2013 to 2016,China had made remarkable achievements in its efforts to prevent and control atmospheric pollution;however,it doesn't demonstrate that the Atmospheric Pollution Prevention and Control Law revised and adopted in 2015 had played an impressive role in contributing to the prevention and control of atmospheric pollution.As a matter of fact,these achievements are made mainly through China's governmental action plans such as 12th Five Year Plan on Air Pollution Prevention and Control in Key Regions and Action Plan on Prevention and Control of Air Pollution.The revised Atmospheric Pollution Prevention and Control Law is deemed 'tougher'with ① more penalty clauses,categories of illegal activities and types of liabilities;②'punishment bundles';③ laddering penalties;④ creative forms of penalties based on polluter's identity and function.All these provisions serve to realize the set goal of 'doers do not violate'.Previous studies have shown that laws making'doers do not violate'cannot guarantee the environment goals can be achieved.In recent years,the secret to the success of China's environmental protection steps lies in ① efforts to reduce absolute emissions,② the rule of the government in charge instead of administrative counterparts,and ③ enforcement with governnent power instead of enforcement through administrative penalties.To make the air pollution prevention and control law the fundamental basis and the guarantee to tackle the air pollution issue,the Atmospheric Pollution Prevention and Control Law in 2015 should be revised again.It should focus on the governmental actions to prevent and control air pollution and the amendments may consider following aspects,first,establishing an air quality goal system;second,improving the overall behavior control system;third,defining clearly authorization of governments at various levels and local authorities in accordance with the requirements of the prevention and control of air pollution;fourth,formulating binding procedures for governments at various levels and local authorities in responsibility performing.After the Atmospheric Pollution Prevention and Control Law is revised with the focus of government actions to prevent and control atmospheric pollution,China will make great progress in building a country governed by law and a sound legal system in the prevention and control of air pollution as well.