作者：曹炜
作者介绍：中国人民大学法学院讲师，法学博士
出版日期：2018年12月9日
内容提要 "规范执行偏离效应"是指在环境法律实施中,规范执行通常会逐渐偏离立法者的预期,从而导致法律实施的结果与立法目的不一致的现象。在规范主义立场下,环境监管是行政机关依执行权适用法律的活动,因此偏离缺乏合法性。在功能主义立场下,偏离则是行政机关为了解决诸多矛盾而对规范执行进行系统调整的结果。为了贯彻环境监管政策,行政机关可以通过行使监管权决定监管重点、监管手段和监管强度,从而影响到规范执行。偏离能够改善监管效果,暴露现有制度或者规范的问题,或者创造新的、更加有效的执行形式,也可能会导致监管失灵、影响规范适用。理论的基本立场不是消除规范执行偏离,而是通过环境监管改革将规范执行的调整机制纳入到法律调整范围之内。与此同时,运用基于"地方政府环境责任"的问责机制对行政机关行使监管权进行控制和约束,并发挥其他机关、组织和公众的监督作用。
关键词 环境监管 规范执行 规范主义 功能主义
Abstract: "Law Enforcement Deviation Effect" is a common phenomenon that the implementation of environmental law deviates from legislative expectation and therefore leads to the gap between statutory design and actual implementation. From the perspective of prescriptivism, supervision is the activity of the administrative organs in accordance with the law applicable to the right of law enforcement. Therefore, deviation lacks legality. From the perspective of functionalism, the law enforcement deviation is the result of the systematic adjustment of the standardized implementation by the administrative organs in order to solve contradictions. The administrative organs may decide the key points for supervision, the means of supervision and the intensity of supervision by exercising the supervision power to affect the standardized implementation so as to realize the policy of supervision. Law enforcement deviation can improve the supervision effectiveness, reveal problems in existing systems or regulations, or create new and more efficient forms of implementation. It also means the risk of supervision failure, which will also affect the application of rules. The theoretical standpoint of handling the law enforcement deviation is not to eliminate it, but to incorporate the adjustment mechanism of standardized implementation into the scope of legal adjustment through the reform of environmental supervision model. At the same time, it is necessary to use the mechanism of accountability based on "Local Government Responsibility of Environmental Protection "to restrict and control supervision power and exert the supervisory role of other departments, organizations and the public.