Уголовно-правовая охрана осуществления экологической функции государства

Аватар пользователя Борков Виктор Николаевич
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В Российской Федерации каждый имеет право на благоприятную окружающую среду.Признание, соблюдение и защита этого конституционного права человека и гражданина, является обязанностью государства, а соответствующее направление деятельности следует рассматривать как одну из государственных функций.В утвержденных Президентом РФ 30 апреля 2012 г.Основах государственной политики в области экологического развития Российской Федерации до 2030 года (далее Основы) глобальными экологическими проблемами, затрагивающими интересы Российской Федерации и ее граждан, признаны: изменение климата, потеря биологического разнообразия, опустынивание.Констатируется рост экологического ущерба от стихийных бедствий, техногенных катастроф, загрязнения атмосферного воздуха и подземных вод, а также морской среды.В Основах стратегической целью государственной политики в области экологического развития признано решение социально-экономических задач, обеспечивающих экологически ориентированный рост экономики, сохранение благоприятной окружающей среды и биологического разнообразия.

Важно подчеркнуть, что одним из принципов экологического развития выступает возложение ответственности за обеспечение благоприятной окружающей среды и экологической безопасности на органы государственной власти и органы местного самоуправления.Ведущую роль в осуществлении экологической функции государства играет Министерство природных ресурсов и экологии РФ.Оно вырабатывает политику в сфере изучения, использования, воспроизводства и охраны природы.

Любая функция государства только преимущественно связана с определенной сферой деятельности, одна и та же функция может осуществляться в различных сферах и различными государственными органами.Например, Министерство обороны РФ «осуществляет экологическое обеспечение Вооруженных Сил в целях восстановления в ходе повседневной деятельности и боевой подготовки войск (сил) окружающей природной среды, а также снижения воздействия экологически неблагоприятных факторов…»2.Федеральная служба безопасности РФ проводит контрразведывательные мероприятия, когда имеются данные об угрозе экологической безопасности Российской Федерации3.Министерство сельского хозяйства РФ определяет методики исчисления вреда, причиненного водным биологическим ресурсам, правила рыболовства для каждого рыбохозяйственного бассейна4.

Осуществлению государственных функций во всех сферах жизни общества препятствуют коррупционные отношения, которые характеризуются взаимодействием должностных лиц с иными лицами в целях извлечения незаконной имущественной выгоды.Коррупционные преступления, в отличие от других должностных преступлений, представляют собой необходимое соучастие, реализуемое в рамках коррупционных отношений.

Так, 16 сентября 2014 г.суд вынес обвинительный приговор в отношении государственного инспектора отдела государственного контроля, надзора и охраны водных биологических ресурсов К., который получил взятку от предпринимателя за несоставление протокола об административном правонарушении и дальнейшее обеспечение беспрепятственной добычи гравия и песка из водоема5.24 августа 2014 г.был осужден бывший начальник отдела государственного земельного надзора Федеральной службы по ветеринарному и фитосанитарному надзору Ш., который получил взятку за непривлечение к административной ответственности лица, самовольно вырывшего котлован, уничтожив при этом плодородный слой почвы площадью более одной тысячи квадратных метров6.27 июня 2014 г.осужден заместитель директора ФГБУ «Государственный заповедник “Байкало-Ленинский”» М.Он получил взятку за заключение контракта о поставке лесопожарных модулей «Пиранья-7» по завышенной цене7.

При решении задачи по совершенствованию уголовно-правовой охраны осуществления экологической функции важно понимать, что развитие государства сопровождается модификацией государственных функций.Изменение сфер, методов и субъектов государственного воздействия предопределяет содержание мер оптимизации норм, предусматривающих ответственность за должностные преступления.Экологическую функцию наряду с государственными органами осуществляют аккредитованные экспертные организации и эксперты, которые должны быть признаны должностными лицами, т.е.возможными субъектами соответствующих преступлений. Так, Правительство РФ устанавливает порядок аккредитации юридических лиц в области использования атомной энергии8, экспертов и экспертных организаций по проведению санитарно-эпидемиологических экспертиз, исследований и иных видов оценок соблюдения санитарно-эпидемиологических и гигиенических требований9.Для установления соответствия планируемой хозяйственной деятельности экологическим требованиям, в целях предотвращения негативного влияния такой деятельности на окружающую среду проводится государственная экологическая экспертиза.Проведение такой экспертизы является обязательным до принятия решения о реализации проекта.Для осуществления данной государственной функции могут привлекаться обладающие научными и (или) практическими познаниями «внештатные эксперты государственной экологической экспертизы»10.Росприроднадзором сформирован реестр независимых экспертов по проведению государственной экологической экспертизы.В реестр были включены ведущие специалисты высших учебных заведений, научно-исследовательских институтов, представители неправительственных экологических организаций.

Независимые эксперты принимают решения, которые влекут юридические последствия для лиц, которые обратились за государственной услугой.

За период с 2011 г.Росприроднадзором предоставлена услуга по проведению экологической экспертизы по 3,5 тысячам объектов.Особое внимание уделялось рассмотрению документации, связанной с разработкой и добычей полезных ископаемых11.

Возможность осуществления государственных функций негосударственными организациями закреплена в Федеральном законе РФ от 21 июля 2014 г.№ 212-ФЗ «Об основах общественного контроля в Российской Федерации»12.В качестве предмета регулирования данного нормативного акта выступают основы организации осуществления общественного контроля за деятельностью органов государственной власти и местного самоуправления, государственных и муниципальных организаций, «иных органов и организаций, осуществляющих в соответствии с федеральными законами отдельные публичные полномочия».В 2013 г.Федеральной службой по аккредитации рассмотрено заявлений от физических и юридических лиц, желающих получить аккредитацию, на 59 % больше, чем за 2012 г13.Аккредитованные лица при выдаче сертификатов, проведении испытаний и исследований часто злоупотребляют предоставленными им полномочиями.В 2013 г.совершение правонарушений, предусмотренных ст. 14.47 «Нарушение правил выполнения работ по сертификации», ст. 14.48 «Предоставление недостоверных результатов исследований (испытаний)» и ст. 19.4.1 «Воспрепятствование законной деятельности должностного лица органа государственного контроля (надзора)» к административной ответственности было привлечено 500 человек.Также в 2013 г.за различные другие нарушения в различных сферах экспертной деятельности было прекращено действие 350 аттестатов аккредитации14.

Так, к административной ответственности, предусмотренной ст. 14.48 КоАП РФ, привлечено общество с ограниченной ответственностью «Пожарная сертификационная компания».Правонарушение состояло в выдаче сертификатов соответствия автоматических выключателей техническому регламенту о требованиях пожарной безопасности без проведения необходимых испытаний15.Очевидно, что решение о сертификации принимал конкретный аккредитованный эксперт.Экспертные полномочия он обязан осуществлять в целях обеспечения безопасности общества и конкретных граждан.

В настоящее время в соответствии с п. 1 примечания к ст. 285 УК РФ должностными признаются лица, осуществляющие функции представителя власти, а также организационно-распорядительные и административно-хозяйственные полномочия.При этом под осуществлением субъектами должностных преступлений организационно-распорядительных полномочий понимаются два разных вида деятельности: первый − это руководство подчиненными, второй − принятие решений, имеющих юридические последствия для лиц, которые обратились за государственными услугами.

Названные вторыми полномочия в уголовном законе можно определить как регистрационно-экспертные.Регистрационно-экспертные полномочия осуществляются в целях обеспечения баланса интересов лиц, которые обратились за государственной услугой, с интересами других граждан, общества и государства.Считаем, что лица, аккредитованные на осуществление отдельных государственных функций, в том числе и привлекаемые для проведения экологической экспертизы, должны признаваться возможными субъектами должностных преступлений, осуществляющими регистрационно-экспертные полномочия.

Учитывая изложенное, п. 1 примечания к ст. 285 УК РФ следует изложить в следующей редакции:

«Должностными лицами в статьях настоящего кодекса признаются лица, постоянно, временно или по специальному полномочию осуществляющие функции представителя власти либо выполняющие регистрационно-экспертные, организационно-распорядительные, административно-хозяйственные функции в государственных и муниципальных организациях, а также аккредитованные на осуществление отдельных государственных функций».

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Проблемы и решения: 

При решении задачи по совершенствованию уголовно-правовой охраны осуществления экологической функции важно понимать, что развитие государства сопровождается модификацией государственных функций. Изменение сфер, методов и субъектов государственного воздействия предопределяет содержание мер оптимизации норм, предусматривающих ответственность за должностные преступления. Экологическую функцию наряду с государственными органами осуществляют аккредитованные экспертные организации и эксперты, которые должны быть признаны должностными лицами, т.е. возможными субъектами соответствующих преступлений.

Считаем, что лица, аккредитованные на осуществление отдельных государственных функций, в том числе и привлекаемые для проведения экологической экспертизы, должны признаваться возможными субъектами должностных преступлений, осуществляющими регистрационно-экспертные полномочия.

Учитывая изложенное, п. 1 примечания к ст. 285 УК РФ следует изложить в следующей редакции:

«Должностными лицами в статьях настоящего кодекса признаются лица, постоянно, временно или по специальному полномочию осуществляющие функции представителя власти либо выполняющие регистрационно-экспертные, организационно-распорядительные, административно-хозяйственные функции в государственных и муниципальных организациях, а также аккредитованные на осуществление отдельных государственных функций».

Zip_слово: 
аккредитация
Статус автора: 
Преподаватель
Отрасли: 
Особенная часть
Уголовное право
Описание статьи / тезисов
Публикуются: 
Статья
Тип статьи / тезисов: 
Теоретико-практическая
Article name /Название статьи (анг.): 
Criminal-law protection of the implementation of environmental functions of the state
Аннотация: 
В статье исследуются проблемы уголовно-правовой охраны осуществления экологической функции государства. Учитывая, что современное государство делегирует полномочиями по осуществлению своих отдельных функций непубличным организациям, автор предлагает расширить круг субъектов, которые должны нести ответственность за должностные преступления
Annotation/ Аннотация (анг.): 
The article deals with the problems of criminal law protection in implementation of environmental functions of the state. Given that the modern state has delegated the authority to implement their individual functions nonpublic entities, the author proposes to extend the range of subjects that need to be held accountable for official malfeasance
Направляется в редакцию: 
Журнал "Правовые технологии"
Статус статьи/тезисов: 
Публикуется впервые
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