摘要
生态流量关系到上下游之间的用水分配,既可能影响下游生产、生活用水,也会对下游整体生态产生巨大影响,从现实来看,确保生态流量长期以来一直被我国所实践,尤其是被水电建设实践所重视,但实际执行效果并不理想,因生态流量泄放不足产生的用水纠纷以及生态环境恶化现象十分突出。在中央环保督查明确指出祁连山水电工程生态流量泄放不足引起下游生态破坏应当整改以及新修订的《水污染防治法》确认了江河流量监管制度背景下,科学研究生态流量的法律确认以及法律保障的整体思路具有必要性和现实意义。基于此,本文针对我国既有生态流量规范进行梳理并阐释其法制缺陷,提出建立独立的生态流量保障法律制度的基本思路。主要包括:(1)明确生态流量的法律定位。生态流量是水生态承载能力的外化表现,生态流量保障制度并非仅作为污染防治的一项支撑制度,而是一项独立的生态制度,核心在于保障水体生态功能的实现。(2)生态流量保障需融合政府管理与社会治理,实现政府、企业、社会共同保障。明确生态流量保障的主管机关、建立生态流量保障适应性管理模式、严格水电企业生态流量管理制度、探索建立绿色水电认证制度,将政府管理、企业约束、公众参与有效融合。(3)形成流域视域下的多层次规则嵌套。国家层面以流域为整体界定生态流量的法律地位并明确生态流量保障制度;流域范围内不同主体间协商博弈形成有效的治理规则,同时建立企业内部完善的生态流量保障落实机制,发挥政府、市场与社会多元共治机能,并以经济刺激、利益保障与分级惩罚作为保障。
The ecological flow relates to the water allocation between the upper and lower reaches.It may not only affect the downstream production water supply and domestic water,but also have a huge impact on the overall ecology of the lower reaches.In reality,ensuring the ecological flow has been practiced in China for a long time,especially in the practice of hydropower construction.However,the actual implementation effect is not ideal.The water disputes caused by insufficient discharge of ecological flow and the deterioration of ecological environment are very protruding.The central environmental protection supervision department clearly pointed out that the lack sufficiency of ecological discharge of Qilian Mountains hydropower project led to ecological damages of lower reaches and it should be rectified.The newly revised Water Pollution Prevention Law also confirms the regulatory system of river flow.In this context,scientific research on the integral framework of legal identification and protection of ecological flow are both necessary and practically significant.Based on this,the author sorted out the regulations on the ecological flow and analyzed its legal flaws,and then proposed integral framework of establishment of independent legal protection system of ecological flow.The article includes three parts.First,clarify the legal status of the ecological flow.Ecological flow is the externalization of water ecological carrying capacity.The system of ecological flow protection is not only a supporting system of pollution control,but an independent ecological system,the core of which is to ensure the realization of the ecological function of water body.Second,integrate the government management and social governance protection of ecological flow,and realize the joint guarantee of government,enterprises and society.The competent authorities for the guarantee of ecological flow should be clarified,the adaptive management model of ecological flow protection and the strict ecological flow management system of hydropower e
作者
落志筠
LUO Zhi-yun(Law School,Chongqing University,Chongqing 400044,China;Law School,Inner Mongolia University of Finance and Economics,Hohhot Inner Mongolia 010070,China)
出处
《中国人口·资源与环境》
CSSCI
CSCD
北大核心
2018年第11期102-111,共10页
China Population,Resources and Environment
基金
国家社会科学基金重大项目"生态文明法律制度建设研究"(批准号:14ZDC029)
第59批中国博士后基金面上资助项目"自然资源资产产权制度研究"(批准号:2016M592633)
关键词
生态流量
环境容量
生态红线
异质利益冲突
法制保障
ecological flow
environmental capacity
ecological red line
heterogeneous conflict of interest
legal protection
