1、環(huán)境公益訴訟與環(huán)保法庭的生命力中國環(huán)保法庭的發(fā)展與未來Development of Environmental Courts in China: the promises and challenges and implementation for environmental public interest litigation 高潔 GAO, Jie美國自然資源保護(hù)委員會（NRDC）中國環(huán)境法項(xiàng)目Natural Resources Defense Council, China Environmental Law Project報(bào)告內(nèi)容 Content走近環(huán)保法庭 Development of

2、Environmental Courts in China 掌聲與質(zhì)疑：環(huán)保法庭的優(yōu)劣之爭 Advantages and Disadvantages of EP Courts 環(huán)境公益訴訟：環(huán)保法庭的生命線 Environmental Public Interest Litigation: the Lifeline of EP Courts對環(huán)保法庭的建議 Suggestions for EP Courts走近環(huán)保法庭Development of EP Courts成立：重大環(huán)境污染事件催生環(huán)保法庭 Establishment: expedited by serious environment

3、al pollution accidents 收案：總體收案尚可,公益訴訟不足 Caseload: moderate caseload in general, but few public interest litigation cases 制度：公益訴訟地方性規(guī)定 范圍和效力受限 Regulations: issued by local courts, with limited application 走近環(huán)保法庭-收案 Development of EP Courts-Caseload環(huán)保法庭EP Courts成立時(shí)間Time of Establishment總收案Cases Accept

4、ed主要案件Majority Case Type 公益訴訟PIL Cases公益訴訟程序規(guī)定PIL Regulations貴陽、清鎮(zhèn)Guiyang and Qingzhen2007.1120Nov. 20, 2007110 件（13個(gè)月）110 in 13 months刑事，占70%Criminal, 70%3件3貴陽市中級法院文件Documents issued by intermediate court 無錫Wuxi2008.5.6May 6, 2008300+件（12個(gè)月）300+ in 12 months行政非訴執(zhí)行，占95%Enforcement of Administrative

5、Orders, 85%1件1無錫市中級法院和檢察院聯(lián)合文件Joint document issued by intermediate court and public prosecutor 昆明Kunming2008.12.11Dec. 11, 200812件（5個(gè)月）12 in 5 months刑事，占57%Criminal, 57%0件0昆明市中級法院聯(lián)合文件云南省高院文件形式Joint document issued by intermediate court etc., Document issued by provincial high court貴陽：長于實(shí)踐 Guiyang: R

6、ich in Experience中級法院系列文件和決定書的方式：相對分散 筆墨不多 Series of brief documents issued by intermediate court 貴陽市中級人民法院關(guān)于設(shè)立環(huán)境保護(hù)法庭的實(shí)施方案貴陽市中級人民法院指定管轄決定書關(guān)于貴陽市中級人民法院環(huán)境保護(hù)審判庭 清鎮(zhèn)市人民法院環(huán)境保護(hù)法庭案件受理范圍的規(guī)定 公益訴訟制度設(shè)計(jì)特點(diǎn)原告的四種類型: Characteristics of the PIL design: 4 types of plaintiffs檢察院 Public prosecutor相關(guān)行政職能部門 Administrative

7、agencies兩湖一庫管理局 Two Lakes and One Reservoir Bureau, a special organ newly set up for water pollution 社會團(tuán)體和個(gè)人？Citizens and citizen groups?貴陽：長于實(shí)踐 (續(xù)) Guiyang: Rich in Experience (continued)實(shí)際適用最多的規(guī)定實(shí)際審結(jié) 三個(gè)環(huán)境公益訴訟案件 Most widely applied regulations: 3 PIL cases were resolved according to these regulatio

8、ns貴陽市兩湖一庫管理局訴貴州天峰化工公司一案，2007年12月 Two Lakes and One Reservoir Bureau v. Guiyzhou Tianfeng Chemical Inc. , Dec. 2007貴陽市人民檢察院訴熊金志、雷章、陳廷雨一案，2008年11月 Guiyang Peoples Public Prosecutor v. Xiong Jinzhi, Lei Zhang, Chen Tingyu, Nov. 2008中華環(huán)保聯(lián)合會訴清鎮(zhèn)市國土資源局一案，2009年9月 All China Environment Federation v. Qingzhen

9、 Land and Resources Bureau, Sep. 2009無錫：勤于思考 Wuxi: Good in Research 中級法院與市檢察院聯(lián)合文件的形式：更為系統(tǒng)和詳細(xì) Joint regulation by intermediate court and public prosecutor: systematic and detailed provisions關(guān)于辦理環(huán)境民事公益訴訟案件的試行規(guī)定環(huán)境公益訴訟制度設(shè)計(jì)特點(diǎn)： Characteristics of the PIL design以檢察院為主導(dǎo) Led by public prosecutor plaintiff環(huán)保民

10、間團(tuán)體和公民個(gè)人參與不明確 Role of environmental groups and citizens unclear對行政主管部門的司法手段不足 Insufficient legal mechanisms to use against administrative agencies國內(nèi)第一個(gè)關(guān)于環(huán)境公益訴訟的地方性規(guī)定 The first local regulation on PIL in China實(shí)際審結(jié)一個(gè)環(huán)境公益訴訟案件 ： One PIL case was resolved according to this regulation中華環(huán)保聯(lián)合會訴江蘇江陰港集裝箱有限公司一

11、案，2009年9月 All China Environment Federation v. Jiangsu Jiangyin Container Inc. Sep. 2009云南：雄心勃勃Yunnan: Ambitious New Comer省高院文件和市中級法院聯(lián)合文件兩種形式 Documents from both provincial high court and intermediate court 昆明市中級人民法院、昆明市檢察院、昆明市公安局、昆明市環(huán)境保護(hù)局關(guān)于建立環(huán)境保護(hù)執(zhí)法協(xié)調(diào)機(jī)制的實(shí)施意見 云南省高院全省法院環(huán)境保護(hù)審判建設(shè)及環(huán)境保護(hù)案件審理工作座談會紀(jì)要 公益訴訟制度的設(shè)

12、計(jì)特點(diǎn)： Characteristics of the PIL design明確了環(huán)保民間組織的環(huán)境公益訴訟原告資格 Clearly authorized standing for environmental groups以水污染為環(huán)保審判重點(diǎn) Focused on water pollution禁令、“補(bǔ)充性環(huán)境工程”裁決方式的應(yīng)用 Injunctions, SEPs as remedies迄今為止唯一一個(gè)在省級機(jī)構(gòu)發(fā)布的公益訴訟規(guī)定 The only PIL regulation issued by a provincial high court, the highest issuing

13、authority thus far尚未得到實(shí)際適用 No cases were accepted 報(bào)告內(nèi)容 Content走近環(huán)保法庭 Development of Environmental Courts in China 掌聲與質(zhì)疑：環(huán)保法庭的優(yōu)劣之爭 Advantages and Disadvantages of EP Courts 環(huán)境公益訴訟：環(huán)保法庭的生命線 Environmental Public Interest Litigation: the Lifeline of EP Courts對環(huán)保法庭的建議 Suggestions for EP Courts掌聲與質(zhì)疑：環(huán)保法庭的

14、優(yōu)劣之爭 Advantages and Disadvantages of EP Courts掌聲：環(huán)保法庭的優(yōu)勢 Advantages of specialized EP Courts 統(tǒng)一執(zhí)法尺度 Consistent application of law提高環(huán)境法官的專業(yè)素質(zhì) Specialized environmental judges增強(qiáng)政府和公眾的環(huán)保意識，案件調(diào)解率提高 Enhanced public and governmental awareness of environment protection, mediation rate increased對企業(yè)的震懾力提高，環(huán)保

15、執(zhí)法效果提升 Higher deterrence of polluters, effectiveness of enforcement increased為環(huán)境公益訴訟提供制度創(chuàng)新空間 Space for PIL system development掌聲與質(zhì)疑：環(huán)保法庭的優(yōu)劣之爭 Advantages and Disadvantages of EP Courts質(zhì)疑：環(huán)保法庭的不足 Disadvantages: 愿望表達(dá)甚于實(shí)際意義 More theoretical than practical 穿新鞋走老路，案件處理沒有實(shí)質(zhì)區(qū)別 No real procedural differences

16、than normal courts案件受理量小，持續(xù)發(fā)展前景堪憂 Small caseload, questionable necessity of the courts環(huán)境公益訴訟實(shí)踐推進(jìn)緩慢，對制度創(chuàng)新的促進(jìn)作用有限 Limited PIL cases, limited opportunity for the PIL system development報(bào)告內(nèi)容 Content走近環(huán)保法庭 Development of Environmental Courts in China 掌聲與質(zhì)疑：環(huán)保法庭的優(yōu)劣之爭 Advantages and Disadvantages of EP Cour

17、ts 環(huán)境公益訴訟：環(huán)保法庭的生命線 Environmental Public Interest Litigation: the Lifeline of EP Courts對環(huán)保法庭的建議 Suggestions for EP Courts環(huán)境公益訴訟環(huán)保法庭的生命線 Environmental Public Interest Litigation-Lifeline of EP Courts環(huán)保法庭的可能命運(yùn) Possible Fate of EP Courts認(rèn)可和推廣，成為司法實(shí)踐的常態(tài) Affirmed and accepted as judicial practice長期保持在有限地域

18、、有限影響的“試點(diǎn)”狀態(tài) Accepted only as a pilot project, with limited long term influence撤銷試點(diǎn)，回復(fù)傳統(tǒng) Closed at any time環(huán)境公益訴訟環(huán)保法庭的生命線 Environmental Public Interest Litigation-Lifeline of EP Courts環(huán)保法庭的生命力體現(xiàn)在哪？ Where does the vitality of EP Courts lay?收案數(shù)量：環(huán)境審判的現(xiàn)實(shí)需求? Sound caseload: a practical need for speciali

19、zed environmental adjudication?改善環(huán)境：設(shè)立環(huán)保法庭的終極目標(biāo) Better environment: the ultimate goal of EP Courts環(huán)境公益訴訟成為環(huán)保法庭的生命線 EPIL as EP Courts lifeline收案數(shù)量：環(huán)境審判的現(xiàn)實(shí)需求?Sound caseload: a practical needs for specialized environmental adjudication? 全國法院系統(tǒng)環(huán)境類案件的增長趨勢Environmental cases accepted by courts nationwide

20、in 1998 and 2009收案數(shù)量：環(huán)境審判的現(xiàn)實(shí)需求? Sound caseload: a practical needs for specialized environmental adjudication ?(continued) 環(huán)保法庭成立前后案件的增長趨勢 Environmental cases accepted before and after establishment of EP Courts改善環(huán)境：設(shè)立環(huán)保法庭的終極目標(biāo) Better Environment: The Ultimate Goal to Set up EP Courts環(huán)境公益訴訟如何成為生命線？ Why is EPIL the lifeline of EP Courts?對政府有限執(zhí)法資源的重要補(bǔ)充 Supplement limited governmental enforcement resources有助于對違法者構(gòu)成充分震懾 Incentivize compliance對環(huán)境公共政策的形成有重大影響 Influence development of environment public policy有助于維護(hù)社會穩(wěn)定 Maintain social stability報(bào)告內(nèi)容 Content走近環(huán)保法庭 Developmen