环境的污染和破坏已成为威胁人类生活和发展的世界性的重大问题，环境权 和环境利益在许多发达国家都得到了确认。我国的环境污染问题逐渐发展为制约 经济发展的瓶颈，其对公民生活的影响也成为社会不安定的潜在因素之一。对于 公民环境权益和公共环境权益的保护是现阶段我国环境法面临的主要课题。对环 境权益的救济是权利内在的程序利益的要求，因为无救济即无权利。公益诉讼是 近年来法学研究的热点问题，但其在环境领域的具体实现，即环境公益诉讼的研 究却相对较少。法律救济途径的缺失，导致环境公共利益得不到有效保护，同时 限制了公民广泛参与环境保护和对我国环境执法的有效监督。本文尝试对环境公 益诉讼进行系统整理，探寻在我国诉讼体制下建立环境公益诉讼制度的可行性及 具体的制度构建。 全文共分为四部分。第一部分，首先分析了公益诉讼的产生原因及其和环境 公益诉讼的联系与区别。应该说，对于环境权益的保护，我们可以通过民事、行 政救济两种途径，但传统的诉讼法理论将原告资格限制为与本案有利害关系，对 于环境等社会公益，公民被认为不具有直接利害关系，因此无法获得诉权。行政 公益诉讼和民事公益诉讼虽然突破了传统诉讼只保护私人利益的局限性，但对兼 具公法和私法属性的环境权益的保护却存在不可调和的冲突。通过以上比较分析， 笔者总结了环境公益诉讼的具体概念、特征和其类别。与此同时，将环境公益诉 讼与群体诉讼的几种模式——共同诉讼、集团诉讼、我国的代表人诉讼进行了对 比，以期寻求合适的途径以现有的司法手段来维护公益，但这几种模式同样存在 着不适应环境公益诉讼的局限之处。 第二部分围绕在我国建立环境公益诉讼的可行性展开。虽然《宪法》并没有 以明示的方式确立公民的环境权益，但在具体的条文上已有所体现。另外，《环境 保护法》和相关的环境法规为环境公益诉讼提供了法律依据，但存在着操作性不 强，缺乏具体权利救济途径的缺陷。而环境法制的不断完善和环境保护法律理念 的更新，为环境公益诉讼制度的建立提供了契机。 第三部分提出了在我国环境法中建立环境公益诉讼制度的具体构想。为了减 少立法成本，在不改变现行诉讼体制的前提下，我们可以在《环境保护法》中建中国政法大学硕士学位报告 我国环境法引入环境公益诉讼的可行性研究 2 立专门的环境公益诉讼制度，扩大原告的主体资格，确立公民、环境保护公益组 织、检察机关的环境公益诉权；由于环境侵权纠纷的特殊性质，该制度在诉讼时 效、举证责任的分配、诉讼费用的负担、获得赔偿财产的处置等方面都有着有别 于传统三大诉讼独特之处。 第四部分主要分析了在我国建立实施环境公益诉讼制度的障碍及克服途径。 首先，公众以法律手段保护环境的意识有待提高，因为公众参与是实现环境保护 的重要方式，建立公众参与环境管理与保护的机制和相应的激励机制能促进公众 的广泛参与。其次，健全我国环境保护行政管理体制方面的立法，明确各级环境 行政管理部门的权力、职责和应该承担的法律责任。然后，合理配置司法权和行 政权，重新确立和加强法官和法院独立审判的职能，实现对行政权的有效监督， 这样才能通过司法手段最终实现环境公益诉讼。最后，正确认定行政处理程序的 性质，可以更为高效的处理环境公益诉讼。 关键词，环境法 公益诉讼 环境公益诉讼 公众参与 可行性中国政法大学硕士学位报告 我国环境法引入环境公益诉讼的可行性研究 1 Abstract As the pollution and damage to the environment has become a worldwide major problem which challenges the mankind’s life as well as his development, such concepts as environmental rights and interests have been accepted in many developed countries. The environmental problem in our country has gradually developed itself to be a barrier to further economic development, with its influences upon people’s life becoming one of the potential factors leading to social unstability. Protection of public environmental interest and citizen’s environmental interests constitutes a major issue that China’s environment laws face at present. As “no procedure, no rights” goes, the protection of environmental rights and interests meets the needs of litigation interest inbreded in the rights. Public interest litigation is one of the hot issues in legal research in recent years, however, its specific realization in the field of environment, that is, research on environmental public interest litigation, is relatively rarely done. The absence of protection ways through legal channels has led to inefficient protection of environmental public interest, simultaneously preventing citizens from extensively monitoring China’s environmental administration. The paper intends to make a trial, systematic research on environmental public interest litigation, seeking the feasibility of establishment of EPIL under China’s present litigation system as well as the specific construction of the system. The paper contains four parts. In part one, the author firstly makes an analysis on the causes for the emergence of public interest litigation as well as the relations, differences between public interest litigation and environmental public interest litigation. Obviously, the environmental rights and interests may be protected through the two channels, namely civil procedure and administrative procedure, but the traditional theories on procedure laws limit plaintiffs’ qualification to only those who enjoy interests in cases, as regard to中国政法大学硕士学位报告 我国环境法引入环境公益诉讼的可行性研究 2 such social public interests as those related with the environment, the general citizens are regarded as having no direct interests, therefore gaining no procedural rights. Though both administrative public interest litigation and civil public interest litigation have broken the limits of traditional litigation protecting only private interests, there exists unreconciled conflicts in the protection of environmental rights and interests which owns both public and private law’s features. Through the above-mentioned comparative analysis, the writer makes a summary on specific concepts, features and types of environmental public interest litigation. Moreover, the writer compares the several modes of environmental public interest litigation and class litigation----joint action, class action, the representative action in China, for the purpose of seeking appropriate ways to be used in protecting public interests by making use of the present legal measures, but unfortunately, these modes of litigation also own disadvantages not suiting environmental public interest litigation. Part two centers on the feasibility of the establishment of environmental public interest litigation in our country. Though citizen’s environmental rights and interests are not expressly identified in the Constitution, they have been, to a certain degree, embordered in some of its clauses. In addition, the environmental law and its related laws and regulations have supplied legal basis for environmental public interest litigation, however, they are not feasible enough, lacking specific procedures. The successive construction of environmental laws as well as the innovation of principles on environment protection laws serves as incentives for the establishment of environmental public interest litigation. Part three puts forward the specific scheme of the establishment of environmental public interest litigation in China’s environmental laws. In order to reduce legislation costs, we can, under the precondition of bringing no changes to the present litigation system, build a special EPIL in EPI, broadening plaintiffs’ qualifications and confirming citizens’ procedural rights on the environmental public interest litigation, environmental non-governmental organizations as well中国政法大学硕士学位报告 我国环境法引入环境公益诉讼的可行性研究 3 as prosecutors’ office. Owes to the special natures of environmental tort, the system enjoys unique characters in such aspects as litigation time limits, allocation of burden of proof, shares in litigation costs, disposal of compensation for damages, etc, those of which are different from the three kinds of traditional litigations. Part four mainly analyzes the barriers to the establishment of EPIL in China as well as the countermeasures. Firstly, the public awareness of protecting the environment through legal channels need to be heightened, as public participation is one of the important means in realization of environment protection. Therefore, the establishment of the mechanisms for the public taking part in environmental management & protection and corresponding encouraging mechanism will promote the public’s extensive participation. Secondly, the legislation in the area of environmental administrative management system is to be improved and the power, duties, and corresponding legal responsibilities of environmental administrative management departments at all levels need to be made clear. Thirdly, the judicial and administrative powers need to be rationally allocated, and the independent judicial powers of judges and courts need to be re-established for the purpose of realizing the effective monitoring of the administrative power. Finally, the administrative way of meditating the environmental tort disputes should be identified clearly, so environmental tort disputes can be dealt efficiently. Key words: Environmental Law ; Public Interest Litigation ; Environmental Public Interest Litigation ; Public Participation; Feasibility中国政法大学硕士学位报告 我国环境法引入环境公益诉讼的可行性研究 1 目 录 内容摘要 ...................................................................................................................................1 Abstract .......................................................................................................................................1 序 言 ..........................................................................................................................................1 一、环境公益诉讼制度研究 ............................................................................3 （一）环境公益诉讼及其特点与类别.......................................................................................3 1．公益诉讼概述....................................................................................................3 2.环境公益诉讼........................................................................................................5 （二）环境公益诉讼的特点.......................................................................................................6 1．与行政公益诉讼的区别.............................................................................6 2．与民事公益诉讼的区别.............................................................................8 （三）环境公益诉讼与其它诉讼的联系与区别.....................................................................11 1．环境公益诉讼与共同诉讼 .....................................................................12 2．环境公益诉讼与集团诉讼 .....................................................................13 3．环境公益诉讼与代表人诉讼................................................................14 （四）环境公益诉讼的类别.....................................................................................................17 1．环境行政公益诉讼 ......................................................................................17 2．环境民事公益诉讼 ......................................................................................18 二、我国环境法建立环境公益诉讼制度的可行性 .............19 （一）建立法治国家的宪法原则为建立环境公益诉讼提供了宪法保障.............................19 （二）环境保护法和有关法律的规定为环境公益诉讼提供了具体法律根据.....................21 （三）环境法治的不断完善为环境公益诉讼制度的建立提供了可喜的发展前景.............22 三、环境公益诉讼可行的框架构想 ......................................................23 （一）主体适格问题.................................................................................................................24 1．原告主体的主体范围.................................................................................24中国政法大学硕士学位报告 我国环境法引入环境公益诉讼的可行性研究 2 2．被告的主体范围............................................................................................27 （二）对环境公益诉讼的限制.................................................................................................27 （三）诉讼时效的确定.............................................................................................................29 （四）举证责任的承担.............................................................................................................30 （五）诉讼费用的承担.............................................................................................................31 （六）获得赔偿财产的处置.....................................................................................................31 （七）法律救济的途径.............................................................................................................32 四、在我国建立实施环境公益诉讼制度的障碍及其克服 途径 ...............................................................................................................................................34 （一）环境保护法律意识缺失.................................................................................................34 （二）环境管理体制不顺及立法不完善.................................................................................35 （三）司法权的行使时常受到非法干预.................................................................................36 （四）环境行政纠纷处理程序性质不明晰.............................................................................38 结 语 ........................................................................................................................................40