【谷騰環保網訊】2024年4月16日第十四屆全(quan)(quan)國(guo)人民代表大會(hui)常務(wu)委(wei)員會(hui)第23次委(wei)員長會(hui)議修(xiu)改(gai)的《全(quan)(quan)國(guo)人大常委(wei)會(hui)2024年度立法(fa)工(gong)作計劃》明確：扎實推進生態(tai)環(huan)境(jing)(jing)法(fa)典(dian)編(bian)纂(zuan)工(gong)作，深入(ru)貫徹習近(jin)平生態(tai)文明思想和習近(jin)平法(fa)治思想，加強組織領(ling)導，密切協作配合，廣泛吸納(na)民意(yi)、匯集民智(zhi)，對(dui)現(xian)行生態(tai)環(huan)境(jing)(jing)法(fa)律制度規范進行系統(tong)整合、編(bian)訂纂(zuan)修(xiu)，形成高質量的生態(tai)環(huan)境(jing)(jing)法(fa)典(dian)草案，力爭(zheng)年內(nei)提(ti)請審議。

生態(tai)環境法典(dian)的編訂纂修意義重大(da)、影響深遠，為積極獻言獻策，筆者結合(he)執法實務(wu)，在(zai)此(ci)提出幾個有關環境違法行為的責任主體確(que)認問題以供大(da)家研究討論：

一、　排放污染或破壞生態擔責，是否以存在生產經營行為為前提？

原(yuan)1989年《環(huan)(huan)(huan)境(jing)(jing)(jing)保(bao)護(hu)法(fa)(fa)(fa)(fa)》第六(liu)條(tiao)規(gui)(gui)(gui)定(ding)(ding)：“一切(qie)單(dan)(dan)位和(he)(he)個(ge)人都有(you)保(bao)護(hu)環(huan)(huan)(huan)境(jing)(jing)(jing)的(de)(de)(de)義(yi)務(wu)(wu)”，現(xian)行(xing)有(you)效的(de)(de)(de)2014年修訂(ding)《環(huan)(huan)(huan)境(jing)(jing)(jing)保(bao)護(hu)法(fa)(fa)(fa)(fa)》則(ze)在(zai)第六(liu)條(tiao)第一款(kuan)、第三款(kuan)區(qu)分(fen)了(le)(le)(le)保(bao)護(hu)環(huan)(huan)(huan)境(jing)(jing)(jing)和(he)(he)污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)的(de)(de)(de)不(bu)(bu)同(tong)責任(ren)(ren)(ren)主(zhu)體(ti)(ti)(ti)(ti)范(fan)(fan)(fan)圍：保(bao)護(hu)環(huan)(huan)(huan)境(jing)(jing)(jing)的(de)(de)(de)義(yi)務(wu)(wu)主(zhu)體(ti)(ti)(ti)(ti)是(shi)(shi)“一切(qie)單(dan)(dan)位和(he)(he)個(ge)人”，防(fang)止、減少環(huan)(huan)(huan)境(jing)(jing)(jing)污(wu)染(ran)和(he)(he)生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)態(tai)(tai)破壞的(de)(de)(de)義(yi)務(wu)(wu)主(zhu)體(ti)(ti)(ti)(ti)是(shi)(shi)“企(qi)業(ye)事(shi)(shi)業(ye)單(dan)(dan)位和(he)(he)其(qi)(qi)他(ta)生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)產經營(ying)(ying)者”。這是(shi)(shi)以(yi)環(huan)(huan)(huan)境(jing)(jing)(jing)保(bao)護(hu)領域“基(ji)本(ben)法(fa)(fa)(fa)(fa)”明(ming)確(que)了(le)(le)(le)企(qi)業(ye)事(shi)(shi)業(ye)單(dan)(dan)位和(he)(he)其(qi)(qi)他(ta)生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)產經營(ying)(ying)者治(zhi)(zhi)(zhi)理(li)污(wu)染(ran)及防(fang)止生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)態(tai)(tai)破壞的(de)(de)(de)主(zhu)體(ti)(ti)(ti)(ti)責任(ren)(ren)(ren)。在(zai)后續出(chu)(chu)臺實(shi)施的(de)(de)(de)水、大氣、土(tu)壤等單(dan)(dan)行(xing)法(fa)(fa)(fa)(fa)律規(gui)(gui)(gui)范(fan)(fan)(fan)中(zhong)，均明(ming)確(que)了(le)(le)(le)企(qi)業(ye)事(shi)(shi)業(ye)單(dan)(dan)位和(he)(he)其(qi)(qi)他(ta)生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)產經營(ying)(ying)者的(de)(de)(de)污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)責任(ren)(ren)(ren)；但在(zai)《固體(ti)(ti)(ti)(ti)廢(fei)物(wu)污(wu)染(ran)環(huan)(huan)(huan)境(jing)(jing)(jing)防(fang)治(zhi)(zhi)(zhi)法(fa)(fa)(fa)(fa)》和(he)(he)《噪聲污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)法(fa)(fa)(fa)(fa)》中(zhong)，則(ze)擴大了(le)(le)(le)承(cheng)擔(dan)污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)義(yi)務(wu)(wu)的(de)(de)(de)責任(ren)(ren)(ren)主(zhu)體(ti)(ti)(ti)(ti)范(fan)(fan)(fan)圍，將產生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)、收集(ji)、貯(zhu)存、運輸、利用、處置固體(ti)(ti)(ti)(ti)廢(fei)物(wu)的(de)(de)(de)單(dan)(dan)位和(he)(he)個(ge)人，以(yi)及排放噪聲的(de)(de)(de)單(dan)(dan)位和(he)(he)個(ge)人納(na)入法(fa)(fa)(fa)(fa)律規(gui)(gui)(gui)制的(de)(de)(de)范(fan)(fan)(fan)圍，而(er)不(bu)(bu)限于(yu)是(shi)(shi)否生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)產經營(ying)(ying)行(xing)為。在(zai)部分(fen)司法(fa)(fa)(fa)(fa)實(shi)踐(jian)中(zhong)，究(jiu)竟承(cheng)擔(dan)環(huan)(huan)(huan)境(jing)(jing)(jing)污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)的(de)(de)(de)行(xing)政法(fa)(fa)(fa)(fa)律責任(ren)(ren)(ren)是(shi)(shi)否需要將存在(zai)生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)產經營(ying)(ying)行(xing)為納(na)入評價，仍有(you)不(bu)(bu)同(tong)的(de)(de)(de)觀(guan)點，部分(fen)司法(fa)(fa)(fa)(fa)裁(cai)判案例對(dui)(dui)此(ci)持(chi)肯定(ding)(ding)態(tai)(tai)度，如海南省高級人民法(fa)(fa)(fa)(fa)院在(zai)王(wang)光(guang)鎖、文昌市綜合行(xing)政執法(fa)(fa)(fa)(fa)局行(xing)政處罰行(xing)政二(er)審行(xing)政案（（2023）瓊(qiong)行(xing)終599號）的(de)(de)(de)裁(cai)判中(zhong)認為：王(wang)光(guang)鎖作為市場(chang)主(zhu)體(ti)(ti)(ti)(ti)從事(shi)(shi)水產養(yang)殖，應當遵(zun)守法(fa)(fa)(fa)(fa)律規(gui)(gui)(gui)定(ding)(ding)，履行(xing)保(bao)護(hu)環(huan)(huan)(huan)境(jing)(jing)(jing)、防(fang)治(zhi)(zhi)(zhi)污(wu)染(ran)發生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)的(de)(de)(de)義(yi)務(wu)(wu)。因此(ci)，在(zai)不(bu)(bu)同(tong)的(de)(de)(de)環(huan)(huan)(huan)境(jing)(jing)(jing)法(fa)(fa)(fa)(fa)律規(gui)(gui)(gui)范(fan)(fan)(fan)對(dui)(dui)于(yu)承(cheng)擔(dan)污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)義(yi)務(wu)(wu)的(de)(de)(de)責任(ren)(ren)(ren)主(zhu)體(ti)(ti)(ti)(ti)出(chu)(chu)現(xian)了(le)(le)(le)規(gui)(gui)(gui)定(ding)(ding)不(bu)(bu)一致的(de)(de)(de)情(qing)形，建議《生(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)態(tai)(tai)環(huan)(huan)(huan)境(jing)(jing)(jing)法(fa)(fa)(fa)(fa)典》在(zai)編纂時(shi)系(xi)統歸(gui)納(na)不(bu)(bu)同(tong)環(huan)(huan)(huan)境(jing)(jing)(jing)法(fa)(fa)(fa)(fa)律規(gui)(gui)(gui)范(fan)(fan)(fan)對(dui)(dui)于(yu)責任(ren)(ren)(ren)主(zhu)體(ti)(ti)(ti)(ti)范(fan)(fan)(fan)圍的(de)(de)(de)規(gui)(gui)(gui)定(ding)(ding)并予以(yi)統一規(gui)(gui)(gui)范(fan)(fan)(fan)法(fa)(fa)(fa)(fa)典的(de)(de)(de)調整對(dui)(dui)象。

除(chu)了生(sheng)產(chan)經營行為的(de)(de)評價必要性以(yi)外，個(ge)人(ren)(ren)生(sheng)活是否受(shou)環(huan)境(jing)(jing)法律規(gui)范(fan)的(de)(de)規(gui)制(zhi)也需(xu)要進一步討論(lun)。筆者認為，基于環(huan)境(jing)(jing)保護法律規(gui)范(fan)所保護法益及公(gong)民環(huan)境(jing)(jing)權的(de)(de)公(gong)共(gong)屬性，個(ge)人(ren)(ren)生(sheng)活如并不(bu)產(chan)生(sheng)環(huan)境(jing)(jing)污染或生(sheng)態(tai)(tai)影(ying)響(xiang)的(de)(de)不(bu)屬于生(sheng)態(tai)(tai)環(huan)境(jing)(jing)法典的(de)(de)調整范(fan)圍，而(er)對(dui)造成環(huan)境(jing)(jing)污染或生(sheng)態(tai)(tai)影(ying)響(xiang)的(de)(de)則需(xu)納入規(gui)制(zhi)，如個(ge)人(ren)(ren)在自然(ran)保護區從事破壞活動的(de)(de)，未采取(qu)措施導(dao)致噪(zao)聲污染的(de)(de)，等等，而(er)不(bu)拘泥(ni)于是否屬于生(sheng)產(chan)經營行為。

二　、建設項目的轉讓，是否導致承擔環評及驗收責任的“轉讓”？

環(huan)(huan)(huan)境(jing)影響(xiang)評價(jia)制(zhi)度(du)(du)及(ji)竣工環(huan)(huan)(huan)保(bao)(bao)驗收(shou)制(zhi)度(du)(du)法律規范中，《環(huan)(huan)(huan)境(jing)影響(xiang)評價(jia)法》《建(jian)設(she)(she)項(xiang)目(mu)(mu)環(huan)(huan)(huan)境(jing)保(bao)(bao)護管(guan)理條(tiao)例》并不(bu)禁止建(jian)設(she)(she)項(xiang)目(mu)(mu)在取得環(huan)(huan)(huan)評批(pi)(pi)復(fu)后(hou)(hou)的轉讓(rang)行(xing)為，但建(jian)設(she)(she)項(xiang)目(mu)(mu)在建(jian)設(she)(she)過程中如存(cun)在未(wei)批(pi)(pi)先(xian)建(jian)或未(wei)驗先(xian)投環(huan)(huan)(huan)境(jing)違法行(xing)為的，在執(zhi)法實(shi)踐(jian)中仍(reng)有不(bu)少(shao)疑點難點問(wen)題(ti)值得商榷(que)：一是(shi)(shi)建(jian)設(she)(she)項(xiang)目(mu)(mu)未(wei)建(jian)成(cheng)即(ji)轉讓(rang)他(ta)人，應當以出讓(rang)方(fang)還(huan)(huan)是(shi)(shi)受讓(rang)方(fang)作為“未(wei)批(pi)(pi)先(xian)建(jian)”責(ze)任(ren)(ren)主(zhu)體？二是(shi)(shi)建(jian)設(she)(she)項(xiang)目(mu)(mu)已(yi)建(jian)成(cheng)未(wei)驗收(shou)后(hou)(hou)即(ji)轉讓(rang)他(ta)人，應當以出讓(rang)方(fang)還(huan)(huan)是(shi)(shi)受讓(rang)方(fang)作為“未(wei)驗先(xian)投”責(ze)任(ren)(ren)主(zhu)體？

環(huan)(huan)(huan)境(jing)法律(lv)規(gui)(gui)(gui)范的(de)基(ji)本原則是“誰污(wu)染(ran)、誰擔(dan)責(ze)(ze)”，并在《環(huan)(huan)(huan)境(jing)保護法》第四十二條規(gui)(gui)(gui)定了企(qi)業事(shi)業單位(wei)和其(qi)(qi)他(ta)(ta)(ta)生(sheng)(sheng)產(chan)(chan)經(jing)營者應(ying)當(dang)對(dui)(dui)其(qi)(qi)所(suo)排(pai)放污(wu)染(ran)物采取相應(ying)措施，并將其(qi)(qi)責(ze)(ze)任主體限定為“排(pai)放污(wu)染(ran)物的(de)企(qi)業事(shi)業單位(wei)和其(qi)(qi)他(ta)(ta)(ta)生(sheng)(sheng)產(chan)(chan)經(jing)營者”；類(lei)似(si)的(de)，在《排(pai)污(wu)許可管(guan)理條例》等法規(gui)(gui)(gui)規(gui)(gui)(gui)章中，也將規(gui)(gui)(gui)制對(dui)(dui)象予以限定為“企(qi)業事(shi)業單位(wei)和其(qi)(qi)他(ta)(ta)(ta)生(sheng)(sheng)產(chan)(chan)經(jing)營者排(pai)污(wu)行(xing)(xing)(xing)為”。結合《行(xing)(xing)(xing)政(zheng)處(chu)罰(fa)(fa)(fa)法》有關行(xing)(xing)(xing)政(zheng)處(chu)罰(fa)(fa)(fa)的(de)適(shi)(shi)用對(dui)(dui)象問(wen)(wen)題，行(xing)(xing)(xing)政(zheng)處(chu)罰(fa)(fa)(fa)針對(dui)(dui)的(de)是公民(min)、法人(ren)或(huo)者其(qi)(qi)他(ta)(ta)(ta)組織違(wei)反行(xing)(xing)(xing)政(zheng)管(guan)理秩序的(de)行(xing)(xing)(xing)為，即行(xing)(xing)(xing)政(zheng)處(chu)罰(fa)(fa)(fa)懲戒(jie)的(de)基(ji)本要件是公民(min)、法人(ren)或(huo)者其(qi)(qi)他(ta)(ta)(ta)組織存在違(wei)反行(xing)(xing)(xing)政(zheng)管(guan)理秩序的(de)行(xing)(xing)(xing)為，如其(qi)(qi)不存在或(huo)并未實施違(wei)法行(xing)(xing)(xing)為，顯然(ran)不屬于(yu)應(ying)當(dang)予以懲戒(jie)的(de)對(dui)(dui)象。筆者認為，對(dui)(dui)于(yu)建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)項(xiang)目(mu)轉讓(rang)涉(she)及(ji)的(de)責(ze)(ze)任主體問(wen)(wen)題，應(ying)該(gai)堅持建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)項(xiang)目(mu)“誰建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)、誰運營管(guan)理、誰承(cheng)擔(dan)”原則，如某(mou)公司新建(jian)(jian)(jian)(jian)(jian)(jian)廠(chang)房但未建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)生(sheng)(sheng)產(chan)(chan)車(che)間(jian)或(huo)購買生(sheng)(sheng)產(chan)(chan)設(she)(she)備(bei)，廠(chang)房建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)完(wan)成后即轉租(zu)他(ta)(ta)(ta)人(ren)建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)生(sheng)(sheng)產(chan)(chan)車(che)間(jian)，則應(ying)當(dang)由(you)實際項(xiang)目(mu)建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)責(ze)(ze)任人(ren)依(yi)法承(cheng)擔(dan)環(huan)(huan)(huan)境(jing)違(wei)法責(ze)(ze)任；如其(qi)(qi)新建(jian)(jian)(jian)(jian)(jian)(jian)廠(chang)房并已建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)生(sheng)(sheng)產(chan)(chan)車(che)間(jian)或(huo)購買生(sheng)(sheng)產(chan)(chan)設(she)(she)備(bei)，車(che)間(jian)建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)完(wan)成后即使轉租(zu)他(ta)(ta)(ta)人(ren)，不影(ying)響其(qi)(qi)需依(yi)法承(cheng)擔(dan)環(huan)(huan)(huan)境(jing)違(wei)法責(ze)(ze)任。同時，建(jian)(jian)(jian)(jian)(jian)(jian)議《生(sheng)(sheng)態環(huan)(huan)(huan)境(jing)法典》在編纂過程(cheng)中，結合工(gong)作(zuo)實踐需要，在環(huan)(huan)(huan)境(jing)影(ying)響評價(jia)制度章節考慮增加(jia)建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)項(xiang)目(mu)環(huan)(huan)(huan)境(jing)影(ying)響評價(jia)批復的(de)變(bian)更(geng)規(gui)(gui)(gui)定，明確建(jian)(jian)(jian)(jian)(jian)(jian)設(she)(she)項(xiang)目(mu)變(bian)更(geng)適(shi)(shi)用的(de)基(ji)本條件以及(ji)變(bian)更(geng)過程(cheng)中的(de)責(ze)(ze)任承(cheng)擔(dan)問(wen)(wen)題。

三、申請排污許可后排污設備的所有權或運營管理權發生變動，應該由何方承擔排污主體責任？

排(pai)(pai)污(wu)許(xu)可(ke)管理法(fa)律規(gui)范(fan)中(zhong)，《排(pai)(pai)污(wu)許(xu)可(ke)管理條例(li)》主要規(gui)制(zhi)的(de)是(shi)企(qi)業(ye)(ye)事業(ye)(ye)單(dan)位和其(qi)他生產經(jing)營者(zhe)排(pai)(pai)污(wu)行(xing)(xing)(xing)為。如生產經(jing)營單(dan)位將其(qi)生產經(jing)營項(xiang)目或生產排(pai)(pai)污(wu)設備(bei)進行(xing)(xing)(xing)發包或出租他人，應當以出租方(fang)還是(shi)承(cheng)租方(fang)作為承(cheng)擔(dan)排(pai)(pai)污(wu)行(xing)(xing)(xing)為的(de)責(ze)任主體(ti)？如出租前已經(jing)取(qu)得(de)排(pai)(pai)污(wu)許(xu)可(ke)手續，承(cheng)擔(dan)排(pai)(pai)污(wu)行(xing)(xing)(xing)為的(de)主任主體(ti)是(shi)否(fou)有所(suo)區(qu)別？

與環評制度類似(si)，排(pai)污(wu)許(xu)可(ke)管(guan)理法(fa)律規(gui)范亦不禁止(zhi)(zhi)排(pai)污(wu)生(sheng)產(chan)經營項目的(de)發包(bao)或(huo)出租，卻明確排(pai)污(wu)許(xu)可(ke)證(zheng)(zheng)禁止(zhi)(zhi)轉讓(rang)(rang)(rang)。不同生(sheng)產(chan)經營主體之間并不可(ke)直接通(tong)過(guo)協(xie)議約定方(fang)式將其持有(you)的(de)排(pai)污(wu)許(xu)可(ke)進行(xing)轉讓(rang)(rang)(rang)。如違(wei)法(fa)出租或(huo)轉讓(rang)(rang)(rang)排(pai)污(wu)許(xu)可(ke)證(zheng)(zheng)的(de)，出讓(rang)(rang)(rang)方(fang)可(ke)能面臨(lin)非法(fa)轉讓(rang)(rang)(rang)排(pai)污(wu)許(xu)可(ke)證(zheng)(zheng)的(de)行(xing)政(zheng)違(wei)法(fa)風險(xian)，而受讓(rang)(rang)(rang)方(fang)則可(ke)能面臨(lin)無證(zheng)(zheng)排(pai)污(wu)的(de)行(xing)政(zheng)違(wei)法(fa)風險(xian)。

對于尚未(wei)取得(de)排污(wu)許(xu)(xu)可(ke)(ke)手(shou)續(xu)的(de)(de)生(sheng)(sheng)產(chan)設(she)(she)(she)備(bei)(bei)發包或(huo)出(chu)租(zu)情(qing)形(xing)，執(zhi)法實(shi)踐(jian)已基(ji)本達(da)成一(yi)(yi)(yi)(yi)致(zhi)認(ren)識，一(yi)(yi)(yi)(yi)般系將(jiang)生(sheng)(sheng)產(chan)設(she)(she)(she)備(bei)(bei)的(de)(de)實(shi)際運營管(guan)(guan)理主(zhu)體(ti)作(zuo)為其排污(wu)行(xing)(xing)為的(de)(de)責任(ren)主(zhu)體(ti)；而對于已經(jing)(jing)(jing)(jing)取得(de)排污(wu)許(xu)(xu)可(ke)(ke)手(shou)續(xu)的(de)(de)生(sheng)(sheng)產(chan)設(she)(she)(she)備(bei)(bei)發包或(huo)出(chu)租(zu)情(qing)形(xing)將(jiang)相(xiang)對復雜，司(si)(si)(si)(si)(si)法實(shi)踐(jian)也有不(bu)少的(de)(de)分歧：一(yi)(yi)(yi)(yi)種是(shi)基(ji)于排污(wu)許(xu)(xu)可(ke)(ke)手(shou)續(xu)的(de)(de)“公(gong)(gong)示對抗原則”，堅(jian)持認(ren)為“誰(shui)持證、誰(shui)擔責”；如如東華云化工(gong)有限公(gong)(gong)司(si)(si)(si)(si)(si)與如東縣環(huan)(huan)境(jing)保(bao)護局、南通(tong)市環(huan)(huan)境(jing)保(bao)護局行(xing)(xing)政處罰二審(shen)(shen)行(xing)(xing)政案（（2016）蘇06行(xing)(xing)終194號），一(yi)(yi)(yi)(yi)審(shen)(shen)海安法院(yuan)裁判(pan)認(ren)為：華云公(gong)(gong)司(si)(si)(si)(si)(si)是(shi)經(jing)(jing)(jing)(jing)依法設(she)(she)(she)立登記(ji)，并經(jing)(jing)(jing)(jing)環(huan)(huan)保(bao)部門審(shen)(shen)批(pi)，可(ke)(ke)以(yi)合法從事(shi)亞(ya)磷(lin)酸生(sheng)(sheng)產(chan)銷售的(de)(de)主(zhu)體(ti)，對在(zai)其公(gong)(gong)司(si)(si)(si)(si)(si)廠(chang)地范圍內、使(shi)用公(gong)(gong)司(si)(si)(si)(si)(si)設(she)(she)(she)備(bei)(bei)、開(kai)展公(gong)(gong)司(si)(si)(si)(si)(si)經(jing)(jing)(jing)(jing)批(pi)準(zhun)認(ren)可(ke)(ke)的(de)(de)項目(mu)經(jing)(jing)(jing)(jing)營行(xing)(xing)為，負有主(zhu)體(ti)責任(ren)和管(guan)(guan)理責任(ren)；二審(shen)(shen)南通(tong)市中級人民法院(yuan)裁判(pan)也認(ren)為：作(zuo)為亞(ya)磷(lin)酸生(sheng)(sheng)產(chan)銷售的(de)(de)法人組織，華云公(gong)(gong)司(si)(si)(si)(si)(si)應當(dang)負有對在(zai)其公(gong)(gong)司(si)(si)(si)(si)(si)廠(chang)地范圍內、使(shi)用公(gong)(gong)司(si)(si)(si)(si)(si)設(she)(she)(she)備(bei)(bei)、開(kai)展公(gong)(gong)司(si)(si)(si)(si)(si)經(jing)(jing)(jing)(jing)批(pi)準(zhun)認(ren)可(ke)(ke)的(de)(de)項目(mu)經(jing)(jing)(jing)(jing)營行(xing)(xing)為的(de)(de)管(guan)(guan)理責任(ren)。

一種是結合(he)生產(chan)設備的(de)運營管理權限以及(ji)對外名義進(jin)行(xing)(xing)(xing)綜合(he)考(kao)慮認(ren)定承擔排污行(xing)(xing)(xing)為的(de)責(ze)任(ren)主體。如廣(guang)東省(sheng)高級人民(min)法院在(zai)黃(huang)(huang)(huang)國飛、陳(chen)賢生海關行(xing)(xing)(xing)政管理（海關）二審(shen)行(xing)(xing)(xing)政案(an)（（2020）粵(yue)行(xing)(xing)(xing)終1770號）中的(de)裁判(pan)觀(guan)點認(ren)為：案(an)涉船(chuan)舶“粵(yue)金輪(lun)(lun)838”船(chuan)的(de)承租人黃(huang)(huang)(huang)國飛聯系(xi)貨主并指使隨船(chuan)業務員陳(chen)賢生從香(xiang)港醉酒灣碼頭將10條廢舊(jiu)輪(lun)(lun)胎裝(zhuang)船(chuan)……黃(huang)(huang)(huang)埔(pu)海關認(ren)定黃(huang)(huang)(huang)國飛、陳(chen)賢生的(de)行(xing)(xing)(xing)為構成瞞(man)報進(jin)口國家禁止(zhi)進(jin)口固(gu)體廢物的(de)走私(si)行(xing)(xing)(xing)為，黃(huang)(huang)(huang)國飛負(fu)(fu)主要責(ze)任(ren)，陳(chen)賢生負(fu)(fu)次(ci)要責(ze)任(ren)，事實清楚，證(zheng)據充分，適用法律正確。

還有值得探討的一點是(shi)，《排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)管理(li)條例》《排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)管理(li)辦法(fa)》禁止的是(shi)民事主(zhu)體之間的排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)轉讓，排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)變(bian)(bian)更(geng)也(ye)并(bing)不(bu)以(yi)(yi)取(qu)得工(gong)商變(bian)(bian)更(geng)登記為(wei)前提，排(pai)(pai)(pai)(pai)(pai)污(wu)單(dan)位(wei)依法(fa)提出變(bian)(bian)更(geng)排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)證申請，并(bing)附具(ju)與(yu)變(bian)(bian)更(geng)排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)事項有關的其他材料的，經審查符合變(bian)(bian)更(geng)情形的也(ye)應當予(yu)以(yi)(yi)變(bian)(bian)更(geng)排(pai)(pai)(pai)(pai)(pai)污(wu)許(xu)(xu)可(ke)(ke)(ke)。

建議《生態(tai)環境(jing)法(fa)典》在編纂時，可以參考《中華人民共(gong)和國(guo)安全生產法(fa)》有(you)關規定，明(ming)確生產經營(ying)單位將(jiang)其生產經營(ying)項目、場所、設備(bei)發(fa)包或(huo)者出租的禁止情形，如進行發(fa)包或(huo)者出租的明(ming)確各方的責任(ren)承(cheng)擔問題。

四、污染防治設施的委托運營管理，污染防治責任能否隨之“轉移”？

依(yi)照《環(huan)(huan)境(jing)(jing)保(bao)護(hu)(hu)法(fa)(fa)》《排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)許可管理(li)(li)(li)(li)條(tiao)例》等(deng)規(gui)(gui)定(ding)，排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)單(dan)(dan)位(wei)具有(you)(you)(you)規(gui)(gui)范安裝使用監(jian)測設(she)(she)備(bei)、保(bao)證監(jian)測設(she)(she)備(bei)正常(chang)運(yun)行(xing)并(bing)及(ji)時報告異常(chang)情況等(deng)方(fang)(fang)面的(de)(de)(de)法(fa)(fa)定(ding)義(yi)(yi)務。委(wei)(wei)托第(di)(di)(di)三(san)方(fang)(fang)機(ji)構對(dui)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)設(she)(she)施進(jin)行(xing)管理(li)(li)(li)(li)運(yun)營的(de)(de)(de)，并(bing)不能(neng)免除各排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)單(dan)(dan)位(wei)依(yi)法(fa)(fa)生產排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)的(de)(de)(de)法(fa)(fa)定(ding)責(ze)(ze)任(ren)。根(gen)據《國(guo)(guo)務院辦公廳關(guan)于推行(xing)環(huan)(huan)境(jing)(jing)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)第(di)(di)(di)三(san)方(fang)(fang)治(zhi)理(li)(li)(li)(li)的(de)(de)(de)意見(jian)》，排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)企業(ye)承(cheng)擔(dan)(dan)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)的(de)(de)(de)主體責(ze)(ze)任(ren)，第(di)(di)(di)三(san)方(fang)(fang)治(zhi)理(li)(li)(li)(li)企業(ye)按照有(you)(you)(you)關(guan)法(fa)(fa)律法(fa)(fa)規(gui)(gui)和標(biao)準(zhun)以(yi)(yi)及(ji)排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)企業(ye)的(de)(de)(de)委(wei)(wei)托要求(qiu)，承(cheng)擔(dan)(dan)約定(ding)的(de)(de)(de)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)責(ze)(ze)任(ren)。原環(huan)(huan)境(jing)(jing)保(bao)護(hu)(hu)部(bu)《關(guan)于推進(jin)環(huan)(huan)境(jing)(jing)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)第(di)(di)(di)三(san)方(fang)(fang)治(zhi)理(li)(li)(li)(li)的(de)(de)(de)實施意見(jian)》也(ye)明確(que)，堅持排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)者擔(dan)(dan)負(fu)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)主體責(ze)(ze)任(ren)，排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)者擔(dan)(dan)負(fu)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)主體責(ze)(ze)任(ren)，并(bing)根(gen)據污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)物種類、數量和濃(nong)度(du)，承(cheng)擔(dan)(dan)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)費用；第(di)(di)(di)三(san)方(fang)(fang)治(zhi)理(li)(li)(li)(li)單(dan)(dan)位(wei)按照有(you)(you)(you)關(guan)法(fa)(fa)律法(fa)(fa)規(gui)(gui)和標(biao)準(zhun)以(yi)(yi)及(ji)排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)單(dan)(dan)位(wei)的(de)(de)(de)委(wei)(wei)托要求(qiu)，承(cheng)擔(dan)(dan)合同(tong)約定(ding)的(de)(de)(de)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)責(ze)(ze)任(ren)。因此，排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)單(dan)(dan)位(wei)負(fu)有(you)(you)(you)依(yi)法(fa)(fa)排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)的(de)(de)(de)義(yi)(yi)務，必須確(que)保(bao)按照排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)許可的(de)(de)(de)規(gui)(gui)定(ding)和要求(qiu)排(pai)(pai)(pai)(pai)(pai)(pai)放(fang)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)物，其(qi)雖然可以(yi)(yi)通(tong)過委(wei)(wei)托運(yun)營等(deng)方(fang)(fang)式將污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)設(she)(she)施交(jiao)由第(di)(di)(di)三(san)方(fang)(fang)機(ji)構進(jin)行(xing)管理(li)(li)(li)(li)，但是該民事約定(ding)并(bing)不能(neng)解除其(qi)依(yi)法(fa)(fa)排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)的(de)(de)(de)法(fa)(fa)定(ding)責(ze)(ze)任(ren)，排(pai)(pai)(pai)(pai)(pai)(pai)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)單(dan)(dan)位(wei)仍必須確(que)保(bao)其(qi)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)治(zhi)理(li)(li)(li)(li)設(she)(she)施正常(chang)運(yun)行(xing)，確(que)保(bao)所排(pai)(pai)(pai)(pai)(pai)(pai)放(fang)的(de)(de)(de)污(wu)(wu)(wu)(wu)(wu)(wu)(wu)染(ran)(ran)物達到國(guo)(guo)家(jia)和地方(fang)(fang)排(pai)(pai)(pai)(pai)(pai)(pai)放(fang)標(biao)準(zhun)。

故而，建議《生態環(huan)境(jing)(jing)法典》在編纂時，列明(ming)(ming)排(pai)污(wu)單位(wei)可(ke)以(yi)將其污(wu)染(ran)防治(zhi)設施(shi)委(wei)托(tuo)由專業機構進(jin)行(xing)運(yun)營(ying)(ying)管理(li)(li)，但委(wei)托(tuo)運(yun)營(ying)(ying)管理(li)(li)并不免除排(pai)污(wu)單位(wei)的(de)主體責任。進(jin)一步地(di)，第三(san)方環(huan)保(bao)公司應(ying)(ying)(ying)否承擔相(xiang)應(ying)(ying)(ying)責任建議生態環(huan)境(jing)(jing)法典予以(yi)明(ming)(ming)確。以(yi)部分地(di)方性法規為(wei)例，《廣東省(sheng)環(huan)境(jing)(jing)保(bao)護(hu)條(tiao)例》《遼寧省(sheng)環(huan)境(jing)(jing)保(bao)護(hu)條(tiao)例》等(deng)設定了受委(wei)托(tuo)管理(li)(li)單位(wei)運(yun)營(ying)(ying)管理(li)(li)污(wu)染(ran)防治(zhi)設施(shi)的(de)法定義務及其相(xiang)應(ying)(ying)(ying)的(de)法律(lv)責任，受委(wei)托(tuo)單位(wei)也(ye)應(ying)(ying)(ying)當按照環(huan)境(jing)(jing)保(bao)護(hu)法律(lv)、法規和相(xiang)關技術規范(fan)的(de)要求對環(huan)保(bao)設施(shi)進(jin)行(xing)管理(li)(li)維護(hu)。

作者單位：廣東省惠(hui)州市生態(tai)環(huan)境局

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