国产欧美亚洲三区久在线观看_如何界定環(huán)境法中的『新建』？開(kāi)工就是“新建”？-汕尾市奔勝環(huán)?？萍加邢薰?/title> <meta name="description" content="如何界定環(huán)境法中的『新建』？開(kāi)工就是“新建”？環(huán)境法中經(jīng)常會(huì )遇到建設項目的新、改、擴建的說(shuō)法，那么什么是建設項目的“新建”呢?? 由于環(huán)境立法中缺乏關(guān)于“新建”含義的解釋?zhuān)灾劣诃h(huán)境執法中對此存在不同認識。根據文獻檢索和文義解釋的方法，建設項目的“新建”是指始于開(kāi)工建設，終于竣工驗收的建設過(guò)程，而不是僅指開(kāi)工建設那一刻的建設行為。與此同時(shí)，項目“新建”性質(zhì)的認定也是行政許可利益衡量的前提"> <meta name="keywords" content="油煙凈化器|餐飲油煙凈化器|廚房油煙凈化器|靜電油煙凈化器|油水分離器|廚房油水分離器|餐廳油水分離器|水噴淋凈化器|燒烤凈化車(chē)"> <meta name="generator" content="MetInfo V7.8" data-variable="../|cn|cn|mui269|2|85|84" data-user_name=""> <link href="../favicon.ico?1538787327" rel="shortcut icon" type="image/x-icon"> <link rel="stylesheet" type="text/css" href="../public/web/css/basic.css?1695610186"> <link rel="stylesheet" type="text/css" href="../templates/mui269/cache/shownews_cn.css?1701059066"> <style> body{ background-color:#ffffff !important;font-family: !important;} h1,h2,h3,h4,h5,h6{font-family: !important;} </style> 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style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;">環(huán)境法中經(jīng)常會(huì )遇到建設項目的新、改、擴建的說(shuō)法，那么什么是建設項目的“新建”呢?</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 由于環(huán)境立法中缺乏關(guān)于“新建”含義的解釋?zhuān)灾劣诃h(huán)境執法中對此存在不同認識。根據文獻檢索和文義解釋的方法，建設項目的“新建”是指始于開(kāi)工建設，終于竣工驗收的建設過(guò)程，而不是僅指開(kāi)工建設那一刻的建設行為。與此同時(shí)，項目“新建”性質(zhì)的認定也是行政許可利益衡量的前提。是否為“新建”，直接決定了執法半徑在環(huán)境法領(lǐng)域，經(jīng)常會(huì )遇到建設項目新建、改建和擴建的說(shuō)法。對于什么是新建、改建和擴建，人們的認識似乎是約定俗成的，但細究起來(lái)，卻又莫衷一是。尤其是就建設項目的“新建”而言，理解上的差異極易造成環(huán)境執法實(shí)踐中的混亂。比如下面這一案例。2014年某地建設項目經(jīng)過(guò)立項、環(huán)評和施工等一系列行政許可后，于2014年9月開(kāi)工建設，但10月時(shí)當地修改環(huán)境立法，明確該項目所在區域禁止“新建”此類(lèi)建設項目。新立法于2014年12月1日正式實(shí)施。該項目恰好跨越了立法變更的時(shí)間點(diǎn)，直至2016年6月完工并進(jìn)行了竣工環(huán)保驗收，2017年初完成了工程綜合驗收。對該項目是否屬于新立法中應被禁止的“新建”項目，環(huán)境執法部門(mén)產(chǎn)生了不同的認識：項目“新建”的認定標準是發(fā)改部門(mén)的立項，還是取得規劃、環(huán)評以及施工等許可?是項目開(kāi)工建設，還是項目竣工驗收?如果該項目屬于新立法中“新建”，那么就應禁止建設;如果不屬于“新建”，則不適用新立法，該項目就可以繼續建設完成。對“新建”的不同定性，直接決定了該項目的未來(lái)命運和環(huán)保部門(mén)的執法半徑。</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;">正確區分不同地區對“新建”不同說(shuō)法<br/></span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 筆者進(jìn)行檢索后發(fā)現，截至目前，尚未發(fā)現國家環(huán)境主管部門(mén)、發(fā)改部門(mén)或者住建部門(mén)對建設項目“新建”的專(zhuān)門(mén)解釋?zhuān)参匆?jiàn)法律中有關(guān)于這一問(wèn)題的立法解釋。要解決實(shí)踐中遇到的問(wèn)題，只能通過(guò)文義解釋和體系解釋的方式進(jìn)行。應對名詞正確含義做出解釋。</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 結合上述對建設項目“新建”含義的分析，開(kāi)篇案例中的建設項目在2014年取得完備許可手續并于2014年9月已經(jīng)開(kāi)工建設，但在2014年年12月1日新立法實(shí)施前沒(méi)有建成，說(shuō)明該項目正在建設。以2014年底新立法施行時(shí)間為節點(diǎn)，在該節點(diǎn)之前該項目未建成，只是“興建”，談不上“新建”;在該時(shí)間節點(diǎn)后，該項目于2016年6月完工，2017年初完成驗收，至此該項目才從無(wú)到有，完成了“新建”。因而該項目屬于在新立法實(shí)施后的“新建”項目，應適用新立法有關(guān)禁止建設的規定。而對于該“新建”項目被禁止建設后已授予的行政許可如何處理的問(wèn)題，根據我國《行政許可法》第八條第二款規定：行政許可所依據的法律、法規、規章修改或者廢止，或者準予行政許可所依據的客觀(guān)情況發(fā)生重大變化的，為了公共利益的需要，行政機關(guān)可以依法變更或者撤回已經(jīng)生效的行政許可。由此給公民、法人或者其他組織造成財產(chǎn)損失的，行政機關(guān)應當依法給予補償。也就是說(shuō)，行政許可被授予后，并非一成不變，當立法發(fā)生變更的情況下，為了公共利益需要，行政機關(guān)有權收回已經(jīng)授予的行政許可同時(shí)給予補償，體現了信賴(lài)利益保護原則中的利益衡量。如果為了所謂的既有利益關(guān)系穩定，一味保護已經(jīng)授予的行政許可，可能會(huì )影響新法實(shí)施后更大范圍的公共利益的穩定，使得環(huán)境行政執法陷入新的困境。具體到前述案例，首先應考慮的并不是應否撤回行政許可，而是實(shí)體上確認項目是否屬于“新建”性質(zhì)，如確屬“新建”，那么就應當適用新立法的規定，依法責令該項目停止建設，或依法限期拆除。同時(shí)，有關(guān)行政機關(guān)應根據《行政許可法》的規定，撤回已授予的行政許可，并根據新立法實(shí)施前的具體施工情況給予相應的補償。將“新建”理解為從開(kāi)工興建到竣工驗收的過(guò)程，不僅有助于維護法治權威和環(huán)境執法統一，而且也有利于督促已取得項目立項、許可等手續的企業(yè)加快建設進(jìn)度，杜絕“久拖不驗”現象發(fā)生?！靶陆ā币辉~看似不足為奇，實(shí)則非同小可。為消除環(huán)境執法中可能出現的理解混亂，建議生態(tài)環(huán)境立法部門(mén)能從生態(tài)環(huán)境保護角度，對該詞在環(huán)境領(lǐng)域的含義加以專(zhuān)門(mén)解釋。</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;">1、新建不是立項</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 從文義解釋來(lái)看，建設項目的“新建”并不僅僅等同于立項、許可等建設手續完備，還需要有實(shí)際的建設行為，否則僅僅手續完備而未實(shí)際開(kāi)工的項目無(wú)異于一張設計圖紙，與建設基本不相干，更無(wú)法與“新建”項目相提并論。在執法中，環(huán)保部門(mén)要根據具體情況，厘清何為“新建”項目。</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;">2、新建不僅是興建</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 興建”表示的是開(kāi)始建設或者建造行為的開(kāi)端。在我國《防治海岸工程建設項目污染損害海洋環(huán)境管理條例》中，多次提及“興建”，目的是強調對建設行為的開(kāi)端加以管控。而項目的“新建”則指向的是一個(gè)項目從無(wú)到有的建造過(guò)程，而不僅僅是指開(kāi)工興建這一建造行為的起點(diǎn)。也就是說(shuō)，“新建”中所謂“新”指的就是“從無(wú)到有”，所謂“建”指向的就是“從無(wú)到有”的“到”的建造過(guò)程。如果建設項目剛剛開(kāi)工建設，只能說(shuō)是項目的“興建”，而不能等同于“新建”項目全部，此時(shí)只能稱(chēng)之為在建項目。只有其建設行為完成，才可以說(shuō)項目從無(wú)到“有”了，項目“新建”完成。那么，建設過(guò)程的終點(diǎn)是什么呢?在建設工程管理中，項目是否建設完成并不是由施工方或者建設方單方?jīng)Q定的，而是根據是否依法完成工程竣工驗收決定的。不同類(lèi)型的建設項目，有不同的工程竣工驗收規范。只有依法通過(guò)驗收的項目，才可以稱(chēng)之為完成建設。故此，項目的“新建”是否完成建設，要以工程竣工驗收為準。</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;">3、開(kāi)工不等于新建</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 在環(huán)境法領(lǐng)域，由于我國現行環(huán)境法律規定，建設項目的環(huán)評應當在項目開(kāi)工前向有審批權的環(huán)保部門(mén)完成報批，因此，如何界定“未批先建”就顯得很關(guān)鍵。雖然環(huán)境立法缺乏關(guān)于項目“新建”的解釋?zhuān)菍椖俊伴_(kāi)工”卻有著(zhù)明確的規范。環(huán)境保護部《關(guān)于加強“未批先建”建設項目環(huán)境影響評價(jià)管理工作的通知》(環(huán)辦環(huán)評【2018】18號)中規定：除火電、水電和電網(wǎng)項目外，建設項目開(kāi)工建設是指建設項目的永久性工程正式破土開(kāi)槽開(kāi)始施工，在此以前的準備工作，如地質(zhì)勘探、平整場(chǎng)地、拆除舊有建筑物、臨時(shí)建筑、施工用臨時(shí)道路、通水、通電等不屬于開(kāi)工建設?；痣婍椖块_(kāi)工建設是指主廠(chǎng)房基礎墊層澆筑第一方混凝土?？梢?jiàn)，無(wú)論是“正式破土開(kāi)槽”，還是“澆筑第一方混凝土”，都是環(huán)境主管部門(mén)確定的建設項目“開(kāi)工”的識別標準。從立法體系解釋的角度看，新、改、擴建項目都存在“開(kāi)工”階段。環(huán)境法領(lǐng)域的這一“開(kāi)工”標準，不僅可用于判斷新建項目的開(kāi)工，還可用于判斷改、擴建項目的開(kāi)工。在此意義上，不能將“開(kāi)工”等同于“新建”。</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;">4、新建不同于已建成</span></p><p style="text-align: justify;"><span style="font-size: 14px; font-family: 宋體, SimSun;"> 在我國《水污染防治法》中，對建設項目還存在“已建成”的提法。例如該法第六十五條規定：禁止在飲用水水源一級保護區內新建、改建、擴建與供水設施和保護水源無(wú)關(guān)的建設項目;已建成的與供水設施和保護水源無(wú)關(guān)的建設項目，由縣級以上人民政府責令拆除或者關(guān)閉。運用體系解釋方法，可以發(fā)現該法中的“新建”、“已建成”的適用對象是各有所指的。此處的“已建成”是以該部法律的實(shí)施日期為節點(diǎn)的，在該時(shí)間節點(diǎn)之前已經(jīng)完成建設的項目，就屬于已建成的項目?！耙呀ǔ伞钡捻椖坎皇恰靶陆ā表椖?，更不是“改、擴建”項目。如果一個(gè)“新”項目在法律實(shí)施之日前才開(kāi)工建設，顯然不是“已建成”項目，也非改擴建項目。其在跨越法律實(shí)施時(shí)間節點(diǎn)后完成建設時(shí)，就屬于“新建”的項目。</span></p><p><br/></p> </section> <div id="bn7vppz" class='met-page p-y-30 border-top1'> <div id="jjbvz7l" class="container p-t-30 "> <ul class="pagination block blocks-2 text-xs-center text-sm-left"> <li id="r7nfzpt" class='page-item m-b-0 '> <a href='../xw/shownews.php?id=83' title="“回頭看”典型案例通報山西呂梁市文水縣敷衍整改廢水污染嚴重" class='page-link text-truncate'> 上一篇 <span aria-hidden="true" class='hidden-xs-down'>: “回頭看”典型案例通報山西呂梁市文水縣敷衍整改廢水污染嚴重</span> </a> </li> <li id="77d7tjl" class='page-item m-b-0 '> <a href='../xw/shownews.php?id=82' title="環(huán)境新聞速覽丨湖南警方偵破一污染環(huán)境案涉案額逾7000萬(wàn)元抓獲14人" 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