生态环境修复行政命令制度的规范建构

中国自然资源类法律中的“责令恢复”类行政命令是生态环境修复行政命令；污染防治类法律中的“责令治理”“责令改正”类行政命令无法解释为生态环境修复行政命令，指向行为时属于矫正违法行为类命令，而指向结果时是应急性危害后果消除类行政命令。行政修复比司法修复更具制度优势和实践基础。立法者应在《环境保护法》和各单行环境法中就生态环境修复行政命令做出原则规定，并制定专门的《生态环境行政命令实施办法》，系统设定该制度的发布程序、实施程序、异议程序、成本收回程序和制裁程序。行政机关启动司法修复应以用尽行政命令制度为前提，环保组织和检察机关启动的司法修复的定位是补充执法，政策修复应坚持“损害担责”“统一规划”原则。

Normative Construction of the Administrative Order System of Ecological Environment Restoration

The “order for restoration” in China’s natural resource law is a kind of administrative order for ecological environment restoration. The “order for governance” and “order for correction” in China’s pollution prevention and control law cannot be interpreted as an administrative order for ecological environment restoration. In the case of directed behavior, it belongs to the order of rectification of illegal behaviors, while in the case of directed result, it belongs to the administrative order of elimination of immediate harmful consequences. Compared with judicial restoration, administrative restoration has institutional advantages. In the future, legislators should make clear the dominant position of the system of administrative orders for ecological environment restoration in Environmental Protection Law and separate environmental laws, and formulate a special procedure law. The core normative contents should include the notice procedure, the implementation procedure, the objection procedure, the recovery procedure of the restoration cost, and the sanction procedure. Administrative organs should start judicial restoration on the premise of exhaustion of administrative order system. The judicial restoration initiated by ENGOs and peoples’ Procuratorates should be positioned as a supplementary system, and policy restoration should adhere to the principles of “Polluter Pay Principle” and “Unified Planning Principle”.