生活垃圾處理特許經營協議是生活垃(la)圾治理領(ling)域常采用(yong)的一(yi)(yi)種(zhong)工具，實(shi)質上(shang)是一(yi)(yi)種(zhong)行政(zheng)協議(yi)。行政(zheng)協議(yi)在垃圾治理(li)中的應(ying)用(yong)是“垃圾治理(li)法治化(hua)”“保障公(gong)益平衡私利公(gong)益”“物有所值”邏輯使(shi)然。

1.垃圾治理法治化

垃圾治理法治化是行政協議能夠生存的基礎。垃圾治理法治化邏輯下法律是垃圾治理的主體，垃圾治理的實體和程序由法律設定，行政機關和市場主體都必須依法做事。垃圾治理法治化邏輯下的行政協議是協議的法治化，保證行政協議具有合法性。垃圾治理行政協議法治化主要體現在行政協議必須遵守土地用途管制制度、規劃管理制度、固廢法(fa)和行政法，具體見附(fu)錄。

2.保障公益平衡私利公益

保障(zhang)公(gong)益(yi)(yi)平衡私(si)(si)利(li)(li)公(gong)益(yi)(yi)是行(xing)政(zheng)協(xie)(xie)議能夠生存的條件。垃圾治理事關資源節約與保護(hu)(hu)、生態環境(jing)保護(hu)(hu)、公(gong)共(gong)環境(jing)維護(hu)(hu)維護(hu)(hu)和(he)經濟社(she)會發展，是一個公(gong)益(yi)(yi)性(xing)較強的行(xing)業，需要政(zheng)府主導(dao)。行(xing)政(zheng)協(xie)(xie)議給予(yu)了行(xing)政(zheng)機關優益(yi)(yi)權(quan)，讓其對(dui)協(xie)(xie)議履(lv)行(xing)擁有監督權(quan)、指揮權(quan)、單(dan)方變更權(quan)和(he)撤銷(xiao)權(quan)；當公(gong)共(gong)利(li)(li)益(yi)(yi)面臨重大(da)損失和(he)法律政(zheng)策(ce)發生重大(da)調(diao)整時(shi)，行(xing)政(zheng)機關為(wei)保障(zhang)公(gong)益(yi)(yi)可以變更甚至撤銷(xiao)行(xing)政(zheng)協(xie)(xie)議。同時(shi)，行(xing)政(zheng)協(xie)(xie)議的協(xie)(xie)商過程賦予(yu)行(xing)政(zheng)相(xiang)對(dui)人提出要求的機會，有利(li)(li)于保證行(xing)政(zheng)相(xiang)對(dui)人的利(li)(li)益(yi)(yi)，進而(er)平衡私(si)(si)利(li)(li)公(gong)益(yi)(yi)。

3.物有所值

物(wu)(wu)有(you)所(suo)值原(yuan)則(ze)(ze)是(shi)行(xing)(xing)政(zheng)協(xie)議的(de)(de)推(tui)力。垃圾治(zhi)理(li)作為一(yi)項經濟活(huo)動，必然要(yao)遵循(xun)物(wu)(wu)有(you)所(suo)值原(yuan)則(ze)(ze)（公平競爭(zheng)下(xia)價高者得(de)），進行(xing)(xing)物(wu)(wu)有(you)所(suo)值評價，盡可能提(ti)高經濟效益。物(wu)(wu)有(you)所(suo)值是(shi)行(xing)(xing)政(zheng)機(ji)關(guan)和行(xing)(xing)政(zheng)相對(dui)(dui)(dui)(dui)人(ren)(ren)的(de)(de)共同追求；行(xing)(xing)政(zheng)協(xie)議有(you)利于行(xing)(xing)政(zheng)機(ji)關(guan)和行(xing)(xing)政(zheng)相對(dui)(dui)(dui)(dui)人(ren)(ren)通(tong)過協(xie)商(shang)實(shi)(shi)現物(wu)(wu)有(you)所(suo)值，行(xing)(xing)政(zheng)協(xie)議讓行(xing)(xing)政(zheng)機(ji)關(guan)在(zai)行(xing)(xing)政(zheng)相對(dui)(dui)(dui)(dui)人(ren)(ren)、垃圾治(zhi)理(li)路線、方式(shi)方法等(deng)方面(mian)具有(you)多種(zhong)選擇(ze)，同時，各(ge)行(xing)(xing)政(zheng)相對(dui)(dui)(dui)(dui)人(ren)(ren)為了在(zai)協(xie)商(shang)過程(cheng)中爭(zheng)取優勢也會拿出自己的(de)(de)最優方案，這都有(you)利于實(shi)(shi)現垃圾治(zhi)理(li)的(de)(de)物(wu)(wu)有(you)所(suo)值；正因如(ru)此，行(xing)(xing)政(zheng)機(ji)關(guan)和行(xing)(xing)政(zheng)相對(dui)(dui)(dui)(dui)人(ren)(ren)都樂于采(cai)用行(xing)(xing)政(zheng)協(xie)議。

4.討論

垃(la)(la)圾(ji)治理(li)(li)推行(xing)(xing)行(xing)(xing)政(zheng)協議(yi)需要垃(la)(la)圾(ji)治理(li)(li)法治化基礎和對物有所值的追(zhui)求(qiu)，如果法治意(yi)識(shi)和經(jing)濟意(yi)識(shi)淡薄，推行(xing)(xing)行(xing)(xing)政(zheng)協議(yi)會招致一(yi)些弊端，如以(yi)行(xing)(xing)政(zheng)協議(yi)之名實則行(xing)(xing)使(shi)行(xing)(xing)政(zheng)委托將降低(di)垃(la)(la)圾(ji)治理(li)(li)行(xing)(xing)業的競爭力和降低(di)垃(la)(la)圾(ji)治理(li)(li)效率。

附錄(lu)：垃圾治(zhi)理(li)行政協議法(fa)治(zhi)化的(de)主要(yao)體現(xian)

垃圾治理行政協議法治化主要體現在3個(ge)方(fang)面：

1）遵(zun)(zun)守土(tu)(tu)地(di)(di)(di)用(yong)途(tu)管(guan)(guan)(guan)制(zhi)制(zhi)度(du)和(he)(he)規(gui)(gui)劃(hua)(hua)管(guan)(guan)(guan)理(li)制(zhi)度(du)遵(zun)(zun)守土(tu)(tu)地(di)(di)(di)用(yong)途(tu)管(guan)(guan)(guan)制(zhi)制(zhi)度(du)和(he)(he)規(gui)(gui)劃(hua)(hua)管(guan)(guan)(guan)理(li)制(zhi)度(du)是《中華(hua)人(ren)(ren)民(min)共和(he)(he)國(guo)土(tu)(tu)地(di)(di)(di)管(guan)(guan)(guan)理(li)法(fa)(fa)(fa)》和(he)(he)《中華(hua)人(ren)(ren)民(min)共和(he)(he)國(guo)城鄉(xiang)規(gui)(gui)劃(hua)(hua)法(fa)(fa)(fa)》垃(la)圾治理(li)法(fa)(fa)(fa)治化(hua)的(de)基(ji)本(ben)要(yao)(yao)求。《土(tu)(tu)地(di)(di)(di)管(guan)(guan)(guan)理(li)法(fa)(fa)(fa)》第(di)四(si)條(tiao)(tiao)(tiao)規(gui)(gui)定“國(guo)家(jia)實行(xing)(xing)(xing)土(tu)(tu)地(di)(di)(di)用(yong)途(tu)管(guan)(guan)(guan)制(zhi)制(zhi)度(du)”“使用(yong)土(tu)(tu)地(di)(di)(di)的(de)單(dan)(dan)(dan)位和(he)(he)個(ge)人(ren)(ren)必須(xu)嚴格按照土(tu)(tu)地(di)(di)(di)利(li)用(yong)總體(ti)(ti)規(gui)(gui)劃(hua)(hua)確定的(de)用(yong)途(tu)使用(yong)土(tu)(tu)地(di)(di)(di)”；《國(guo)城鄉(xiang)規(gui)(gui)劃(hua)(hua)法(fa)(fa)(fa)》第(di)七條(tiao)(tiao)(tiao)、第(di)九條(tiao)(tiao)(tiao)規(gui)(gui)定“經(jing)依(yi)法(fa)(fa)(fa)批(pi)準(zhun)(zhun)的(de)城鄉(xiang)規(gui)(gui)劃(hua)(hua)，是城鄉(xiang)建設(she)和(he)(he)規(gui)(gui)劃(hua)(hua)管(guan)(guan)(guan)理(li)的(de)依(yi)據”“任何(he)單(dan)(dan)(dan)位和(he)(he)個(ge)人(ren)(ren)都應當遵(zun)(zun)守經(jing)依(yi)法(fa)(fa)(fa)批(pi)準(zhun)(zhun)并公布的(de)城鄉(xiang)規(gui)(gui)劃(hua)(hua)，服從(cong)規(gui)(gui)劃(hua)(hua)管(guan)(guan)(guan)理(li)”。設(she)定垃(la)圾治理(li)項(xiang)(xiang)目，尤其需要(yao)(yao)申(shen)請用(yong)地(di)(di)(di)的(de)項(xiang)(xiang)目，必須(xu)符(fu)合國(guo)民(min)經(jing)濟(ji)和(he)(he)社(she)(she)會(hui)發(fa)(fa)展規(gui)(gui)劃(hua)(hua)、城鄉(xiang)（鎮）村總體(ti)(ti)規(gui)(gui)劃(hua)(hua)、土(tu)(tu)地(di)(di)(di)利(li)用(yong)總體(ti)(ti)規(gui)(gui)劃(hua)(hua)，而且(qie)，用(yong)地(di)(di)(di)指標(biao)納(na)入土(tu)(tu)地(di)(di)(di)利(li)用(yong)年度(du)計劃(hua)(hua)。根(gen)據土(tu)(tu)地(di)(di)(di)用(yong)途(tu)管(guan)(guan)(guan)制(zhi)制(zhi)度(du)和(he)(he)規(gui)(gui)劃(hua)(hua)管(guan)(guan)(guan)理(li)制(zhi)度(du)，沒有列入經(jing)濟(ji)社(she)(she)會(hui)發(fa)(fa)展規(gui)(gui)劃(hua)(hua)、總體(ti)(ti)規(gui)(gui)劃(hua)(hua)和(he)(he)土(tu)(tu)地(di)(di)(di)利(li)用(yong)規(gui)(gui)劃(hua)(hua)與年度(du)計劃(hua)(hua)的(de)垃(la)圾治理(li)項(xiang)(xiang)目，行(xing)(xing)(xing)政(zheng)(zheng)機關(guan)依(yi)法(fa)(fa)(fa)不(bu)予立(li)(li)項(xiang)(xiang)、審批(pi)（或核(he)準(zhun)(zhun)、備案）和(he)(he)辦(ban)理(li)有關(guan)手續(xu)，市(shi)場主體(ti)(ti)不(bu)應向行(xing)(xing)(xing)政(zheng)(zheng)機關(guan)提出立(li)(li)項(xiang)(xiang)申(shen)請。2）遵(zun)(zun)守《固(gu)廢(fei)(fei)法(fa)(fa)(fa)》等垃(la)圾治理(li)實體(ti)(ti)法(fa)(fa)(fa)《中華(hua)人(ren)(ren)民(min)共和(he)(he)國(guo)固(gu)體(ti)(ti)廢(fei)(fei)物(wu)污染環境防治法(fa)(fa)(fa)》是垃(la)圾治理(li)行(xing)(xing)(xing)業的(de)專業法(fa)(fa)(fa)，行(xing)(xing)(xing)政(zheng)(zheng)協(xie)(xie)(xie)議(yi)的(de)發(fa)(fa)起、協(xie)(xie)(xie)商和(he)(he)執行(xing)(xing)(xing)過(guo)程都必須(xu)遵(zun)(zun)守。行(xing)(xing)(xing)政(zheng)(zheng)協(xie)(xie)(xie)議(yi)要(yao)(yao)嚴守市(shi)場準(zhun)(zhun)入負面清單(dan)(dan)(dan)，法(fa)(fa)(fa)律禁止(zhi)的(de)不(bu)可為，法(fa)(fa)(fa)律要(yao)(yao)求的(de)必須(xu)為，固(gu)廢(fei)(fei)法(fa)(fa)(fa)禁止(zhi)的(de)領域(yu)、業務不(bu)得成(cheng)為行(xing)(xing)(xing)政(zheng)(zheng)協(xie)(xie)(xie)議(yi)發(fa)(fa)起事項(xiang)(xiang)，固(gu)廢(fei)(fei)法(fa)(fa)(fa)要(yao)(yao)求的(de)權(quan)利(li)、責任、義務、行(xing)(xing)(xing)政(zheng)(zheng)許可事項(xiang)(xiang)和(he)(he)行(xing)(xing)(xing)政(zheng)(zheng)監督事項(xiang)(xiang)等必須(xu)落實到位，固(gu)廢(fei)(fei)法(fa)(fa)(fa)禁止(zhi)的(de)行(xing)(xing)(xing)為不(bu)得發(fa)(fa)生在行(xing)(xing)(xing)政(zheng)(zheng)協(xie)(xie)(xie)議(yi)執行(xing)(xing)(xing)過(guo)程中。

3）遵守《行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)許可(ke)法(fa)(fa)(fa)》等(deng)行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)法(fa)(fa)(fa)行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)協(xie)(xie)(xie)議的(de)(de)形式標準(zhun)是(shi)行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)機關與行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)相對(dui)人(ren)之間(jian)的(de)(de)協(xie)(xie)(xie)商(shang)一致，但實(shi)(shi)質標準(zhun)是(shi)協(xie)(xie)(xie)議的(de)(de)標的(de)(de)及內(nei)容具有行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)法(fa)(fa)(fa)上的(de)(de)權(quan)(quan)利、責任和義務；行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)主體(ti)(ti)簽訂行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)協(xie)(xie)(xie)議的(de)(de)主要(yao)目的(de)(de)是(shi)實(shi)(shi)現行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)管理職(zhi)能和維(wei)護(hu)公共(gong)利益，行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)主體(ti)(ti)對(dui)于行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)協(xie)(xie)(xie)議的(de)(de)履行(xing)(xing)(xing)(xing)享有行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)優(you)益權(quan)(quan)，對(dui)協(xie)(xie)(xie)議履行(xing)(xing)(xing)(xing)擁(yong)有監督(du)權(quan)(quan)、指揮權(quan)(quan)、單方變更權(quan)(quan)和撤銷權(quan)(quan)；行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)協(xie)(xie)(xie)議應遵守《中華人(ren)民(min)共(gong)和國行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)許可(ke)法(fa)(fa)(fa)》，實(shi)(shi)行(xing)(xing)(xing)(xing)“申請+審(shen)核（受理、審(shen)查、決定等(deng)）”程序，行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)機關依照《行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)許可(ke)法(fa)(fa)(fa)》《行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)處罰法(fa)(fa)(fa)》《行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)強(qiang)制法(fa)(fa)(fa)》和相關專業實(shi)(shi)體(ti)(ti)法(fa)(fa)(fa)行(xing)(xing)(xing)(xing)使行(xing)(xing)(xing)(xing)政(zheng)(zheng)(zheng)(zheng)監督(du)檢查。