我国农村环境监管法律问题研究

我国农村环境监管法律问题研究

重庆大学硕士学位论文

学生姓名：杨远超

指导教师：黄锡生 教 授

专 业：环境与资源保护法学

学科门类：法 学

重庆大学法学院

二 O 一 O 年五月

Research on the Legal Questions of Rural

Environmental Regulation and Monitoring

of China

A Thesis Submitted to Chongqing University

in Partial Fulfillment of the Requirement for the

Degree of Master of Law

By

Yuanchao Yang

Supervised by Prof. Xisheng Huang

Major: Environmental and Resources

Protection Law

Law School of Chongqing University，

Chongqing，China

May，2010

I

摘 要

自然环境是人类社会赖以生存和发展的物质基础，环境安全关系到人们生存

发展和国计民生。农村是农民生活和生产的基地，是全国人民生活的源泉和国民

经济存在的根本，农村环境的好与坏直接影响到国家大局的稳定与否。近年来，

随着我国农村经济的发展，农村现代化、城市化的进程加快，农村环境问题也愈

演愈烈，农村环境监管这一领域成为当前我国学术界研究的热点，一些专家和学

者的研究成果初步形成了具有我国特色的农村环境监管法律研究理论。由于我国

农村环境问题的日渐突出，已经成为影响我国社会和谐与稳定及城乡统筹协调发

展的重要因素，进而影响到全面建设小康社会的进程。形成健全的农村环境监管

法律制度已势在必行。

我国现行农村环境监管法律制度存在很多缺陷，比如缺乏统一性和协调性，

农村环境监管存在多头执法和监管权责不明等诸多问题，已明显不适应农村经济、 环境发展需要。我国在农村环境监管法律制度建设方面与发达国家以及某些发展

中国家存在较大差距。因此，研究制定具有中国特色的农村环境监管法律制度，

对于保障我国农村经济健康发展、维护社会稳定和促进农民环境权实现具有重要

的理论和现实意义。

本文通过对我国农村环境监管法律制度的现状及存在问题的分析，借鉴欧美、

日韩等发达国家以及泰国等发展中国家在农村环境监管制度建设中的经验，针对

我国国情，从监管立法制度、监管执法制度、监管司法制度等方面入手，提出了

完善我国农村环境监管法律制度的思路和框架，为构建以预防为主、防治结合的

农村环境监管法律制度提供了理论依据和政策建议。

本文主体部分主要包括三方面内容：

第一部分，对农村环境问题及农村环境监管基本概念进行阐述。对农村环境

问题及其相关概念进行了阐述和辨析，对农村环境监管的概念进行科学界定，即

为了协调农村人与自然的关系，促进农村人与自然的和谐共处，保证农村自然资

源的合理开发利用，防止农村环境污染和生态环境破坏，保障农村社会、经济与

环境可持续发展而采取的一系列监督管理措施和行动的总称。

第二部分，对我国农村环境监管法律制度存在的问题进行分析，指出其中存

在有：在立法方面，农村环境监管存在立法空白、农村环境监管立法不适应农村

情况；在执法方面，农村环境监管执法主体缺乏独立性、农村基层环保组织过于

薄弱、环境监管执法工作“刚”性不足，执法不严现象比较突出、地方保护主义比较 严重；在司法方面，农村环境监管的司法力量不均衡，农村司法力量薄弱、公益 II

诉讼制度缺失，农村环境诉权主体范围狭窄，农民缺乏环境侵权司法救济手段等。 第三部分，通过对农村环境监管制度存在问题的分析，提出完善我国农村环

境监管法律制度的建议。首先提出了农村环境监管的指导思想，包括可持续发展

思想和科学发展观等。然后通过分析欧美、日韩以及泰国等国家在农村环境监管

法律制度建设中的先进经验，结合我国国情和农村环境问题的具体情况，提出了

完善我国农村环境监管法律制度的具体建议，包括在立法方面改变仅注重城市环

境保护而轻视农村环境保护的环境监管立法观念，建立适合我国国情并且紧随国

际潮流的农村环境监管法律体系；在执法方面，建立严密有力的农村环境监管执

法主体，完善农村环境监管公众参与制度，加强第三方监管尤其是农村基层组织

监管的力度；在司法方面建立完善的农村环境司法程序和司法组织，构建农村环

境公益诉讼制度等。并结合环境监管教育制度、环境监管财政制度等方面的完善， 来促使我国农村环境问题得到缓解，农村经济、社会和环境三者得到协调和可持

续的发展。

关键词：农村，环境监管，法律制度，可持续发展

III

ABSTRACT

Environment is the basic material basis of human’s existence and development. Environmental safety related to people's survival, development and people's livelihood.

Country’s environment is the base of farmers living and production, the source of the

national people's lives and the existence of fundamental economic. Rural environment’s good or bad directly related to the stability of the whole or not. In recent years, with the

development of China's rural economy, rural modernization, the process of growing

urbanization, intensified the rural environment, and rural environmental regulation in

this area has become the hot spot in China academic research, some experts and

scholars of the research results formed the rural environment, regulatory law theory

with Chinese characteristics. As the rural environmental issues become increasingly

prominent, it has become an important obstruction of the cause of social harmony and

stability and coordinated development of urban and rural areas, thereby affecting the

process of building a well-off society. It is imperative to format a sound legal regulatory system in rural areas environment.

There are many shortcomings of China's existing rural environment Legal System,

for example the lack of uniformity and coordination, supervision of the rural environment, law enforcement and regulatory powers and responsibilities of the existence of unknown long and so many problems, has clearly not suited to the rural

economy, environment development needs. There is a wide gap between our country’s legal research supervision in a rural environment and the developed countries and some

developing countries. Therefore, the study and development of legal systems of rural

environmental monitoring with Chinese characteristics has important theoretical and

practical significance for the protection and healthy development of China's rural

economy, maintaining social stability and promotes the right of farmers to achieve the

environment.

Based on the analysis of legal system of the rural environmental monitoring, system’s status and problems, the experience in countries of Europe and America, Japan,

Korea, Thailand and other developing countries and other developed countries’ environmental monitoring system construction in rural areas, and situation in China,

from the regulatory legislative scheme to regulate the enforcement system, monitoring

and other aspects of the judicial system, by improving the legal system of our rural

IV

environmental monitoring guidelines and framework for building a prevention-oriented, combining prevention with control of rural environment monitoring system provides a theoretical basis for the legal and policy recommendations .

The main part of this paper consists of three parts:

The first part, on the rural environment and rural environment elaborates the basic

concepts of supervision. Rural environmental problems and their related concepts are

described and discrimination, on the rural environment, scientific definition of the

concept of regulation, that is to coordinate the relationship between man and nature in

rural areas, rural people and nature live in harmony, to ensure the rational development

of natural resources in rural areas use, prevent pollution and ecological destruction of

the environment in rural areas, protection of rural social, economic and environmentally sustainable development and adopted a series of management measures and actions to

monitor the general term.

The second part of the Legal System of China's rural environmental problems in

the analysis, pointing out there are: In terms of legislation, monitoring legislative gaps

in the rural environment, rural environment not suited to rural conditions regulatory

legislation; in law enforcement, environmental regulation and law enforcement in rural areas the main lack of independence, the rural grass-roots environmental organizations are too weak, environmental regulation and law enforcement work "just" lack of strictly enforcing the laws are quite prominent, more serious problems of local protectionism; in

the administration of justice, the judicial power of the rural environment, regulatory

imbalance judicial power of the rural poor, lack of public interest litigation system, main narrow right to appeal the rural environment, farmers lack of environmental violations and other judicial remedies.

The third part of the rural environment through the regulatory system problems of

analysis, improve the rural environmental monitoring guidelines, including sustainable development thinking and the scientific concept of development. Then by analyzing the

Europe, America, Japan, Korea and Thailand and other countries in the rural environment, the legal system of supervision in the advanced experience,

combined

with China's national conditions and the specific circumstances of the rural environment, by improving the legal system of the rural environmental monitoring specific proposals,

including legislation only focus on aspects of change in rural areas of urban environmental protection and despise the concept of environmental protection, environmental regulatory legislation, the establishment of suitable conditions and with V

international trends in China's rural environmental regulatory legal system; in law

enforcement, the establishment of close and effective supervision of enforcement of the

main rural environment, improve the rural public participation in environmental regulatory system, and strengthen supervision, especially in rural grassroots party organizations, the intensity of supervision; in the administration of justice to establish a sound rural environmental justice procedures and judicial organizations, building public

interest litigation system, and the rural environment. Combined with environmental

education, the environment and other aspects of sound financial systems, to promote the rural environmental problems have been alleviated, the rural economy, society and the

environment are the three coordinated and sustainable development.

Key words: Countryside, Environmental monitoring, Legal System, Sustainable Development

VI

目 录

中文摘要 .......................................................................................................................................... I

英文摘要 ....................................................................................................................................... III 1 绪 论 ......................................................................................................................................... 1

2 我国农村环境问题及监管概述 ................................................................................... 4

2.1 我国农村环境问题及其危害 ............................................................................................... 4

2.1.1 我国农村农业污染及其危害 .................................................................................... 4

2.1.2 我国农村工业污染及其危害 .................................................................................... 5

2.1.3 我国农村生活垃圾污染及其危害 ............................................................................ 5

2.1.4 我国城市污染转移及其对农村的危害 .................................................................... 5

2.2 我国现行农村环境监管概述 ............................................................................................... 5