沿海滩涂保护法律问题研究

发布时间：2018-05-13 09:18

本文选题：沿海滩涂 + 生态环境保护　；参考：《中国海洋大学》2013年博士论文

【摘要】：沿海滩涂地处海陆交界地带，具有特殊的资源价值和生态价值。随着沿海经济的发展，以及大量人口向沿海一线转移，沿海区域面临发展空间不足、资源匮乏等问题。为了解决上述问题，沿海区域开始大规模开发（或侵占）沿海滩涂，大量的沿海滩涂被改造成农业耕地、城市建设用地以及渔业养殖场所。由于人们只是关注沿海滩涂的资源价值，而忽视其生态价值，从而造成了一系列社会和环境问题。目前，我国有关沿海滩涂的法律法规及其管理，更有利于沿海滩涂的资源开发，而非生态保护。因此，要实现沿海滩涂经济开发与生态保护的平衡，需要对我国目前沿海滩涂保护的法律问题进行系统性、创新性研究。目前我国相关法律法规尚未对沿海滩涂概念进行明确的界定，由于沿海滩涂概念不清或混乱造成实践中沿海滩涂管理与保护的缺位或错位现象很普遍。沿海滩涂更为科学的定义，是将其界定为具有可供沿海生物生存、栖息和繁殖的生态物质基础的潮间带、潮上带和潮下带。潮上带和潮间带滩面宽窄不一，从几十米至几千米不等；潮下带是退潮时向陆一侧水深不超过6米的区域。沿海滩涂按照不同的划分标准，，可以分为不同的种类。按照地质构造成分的标准分类，可以分为泥滩、砂滩、岩滩三种；按照生态的显示度标准，可以分为裸滩和生物滩两种。其中生物滩又可以细分为草滩、红树林滩和珊瑚礁滩三种；按照其形态变化的标准，可以将之划分为稳定型滩涂、淤涨型滩涂、侵蚀型滩涂三种。沿海滩涂具有海陆交界性、动态变化性、生态性等特征，这些特征彰显了沿海滩涂的独特性。除了概念上的模糊之外，我国相关法律对沿海滩涂的性质也没有做出非常明确的定位。学界对其性质定位还遵循“非土地即海域”的两分法思路，从而使得沿海滩涂的潮上带、潮间带和潮下带分属不同的法律调整，造成了沿海滩涂保护的割裂。要实现沿海滩涂的有效保护，需要打破这种思维窠臼，遵循三分法的思路，即将之划分为“土地、海域、海岸带”三种性质，将沿海滩涂纳入海岸带范畴，实现沿海滩涂潮上带、潮间带和潮下带性质定位上的一致，从而将沿海滩涂作为一个整体予以保护。沿海滩涂在调节气候、保有生物多样性、净化海岸环境等方面发挥着重要的作用。但是我国的沿海滩涂退化严重：沿海滩涂的面积不断遭受自然侵蚀和人工侵占；生物多样性不断降低；滩涂污染也日益严重。沿海滩涂的严重退化使得其生态功能不断受到损害。我国的沿海滩涂之所以存在退化严重的状况，在于我国沿海滩涂的管理体制、法律法规及调整手段都存在些许问题。沿海滩涂的管理体制是一种分散管理体制，水利部门、海洋部门、林业部门、农（渔）业部门、国土部门及环保部门等都有管理和规制权限；沿海滩涂管理体制还是一种“地方为主、中央为辅”的管理体制，是一种环境保护从属于经济开发的管理体制。目前我国尚没有专门出台一部有关沿海滩涂的法律和行政法规，有关沿海滩涂的地方法规和规章主要基于滩涂的经济开发而非生态保护。地方法规和规章设定的沿海滩涂调整手段单一，主要包括“滩涂开发的环境许可、滩涂开发的环境规划、滩涂违规开发与环境破坏的行政处罚”三种调整手段。三种调整手段在实际操作过程中注重沿海滩涂的入口管控和末端管控，而非过程管控。沿海滩涂保护之所以在管理体制、法律法规及调整手段上存在上述问题，究其根源，可以概括为三个方面：注重资源而非生态的价值认知，基于分散而非综合的制度根源，侧重端口而非过程的调整思路。换言之，沿海滩涂保护具有“资源性、分散性和端口性”的症结。要实现沿海滩涂的有效保护，实现滩涂经济开发与生态保护的平衡，关键就是转变沿海滩涂法律保护的思路，秉承“生态性、综合性和过程性”的基本原则，构建沿海滩涂的生态保护法律机制、综合管理体制和完善的调整手段体系。其中，生态性原则是沿海滩涂保护的基础性原则，综合性原则和过程性原则是生态性原则的延伸和保障。沿海滩涂保护的生态性，可以通过沿海滩涂的生态保护法律机制构建得以实现。生态保护法律机制包括三个方面的内容：沿海滩涂“零净损失”法律机制、沿海滩涂功能区划法律机制、沿海滩涂生态补偿法律机制。三项法律机制形成一个紧密联系的整体。“零净损失”法律机制确立全国滩涂保护面积以及可开发的要求，功能区划法律机制根据滩涂种类和分布对滩涂进行生态功能分类，生态补偿法律机制则对滩涂开发与保护进行利益平衡。三项法律机制尽管并不完全否定滩涂开发与利用，但是可以改变沿海滩涂资源为本的开发属性，从而实现其生态为本的保护属性。沿海滩涂保护的综合性，可以通过沿海滩涂综合管理体制构建得以实现。遵循当前世界各国在环境保护上重视协调机构建设的思路，沿海滩涂综合管理体制构建的核心是建立职权明确、架构合理的沿海滩涂综合管理委员会。综合管理委员会需要实现与海岸带管理机构的契合，并为水利部门、海洋部门、林业部门、农（渔）业部门、国土部门及环保部门等滩涂管理主体提供沟通和协调的平台，从而实现沿海滩涂管理主体之间、中央与地方之间关系的理顺。沿海滩涂保护的过程性，可以通过沿海滩涂调整手段体系的构建得以实现。完善的沿海滩涂调整手段体系应该包括沿海滩涂行政调整手段体系和经济调整手段体系。行政调整手段基于命令-控制，具体包括滩涂环境标准、滩涂环境规划、滩涂环境影响评价、滩涂环境开发许可、滩涂环境破坏处罚等；经济调整手段体系则是基于激励-引导，具体包括滩涂开发权交易、滩涂开发押金、滩涂开发税/费、滩涂保护补贴等。两大类调整手段体系形成了事前预防、事中监控、事后补偿的完整体系，避免沿海滩涂保护“侧重事后处罚、轻于事前预防”等端口管控症结，从而实现过程调整。
[Abstract]:The coastal beach is located at the border area of the sea and land, which has special resource value and ecological value. With the development of coastal economy and the transfer of a large number of people to the coastal front, the coastal areas are facing the problems of insufficient space and lack of resources. In order to solve the above problems, the coastal areas have begun to develop large scale (or encroach on) coastal beaches. The coastal beach has been transformed into agricultural land, urban construction land and fishery culture place. Because people just pay attention to the resources value of the coastal beach and ignore its ecological value, it has caused a series of social and environmental problems. At present, the legal rules and management of coastal beaches in China are more conducive to the development of coastal beach resources. Therefore, in order to balance the economic development and ecological protection of the coastal beach, it is necessary to carry out systematic and innovative research on the legal issues of the coastal beach protection in China.
At present, the relevant laws and regulations of our country have not clearly defined the concept of coastal beach. Because of the unclear concept or confusion of coastal mudflat, the absence or dislocation of coastal beach management and protection in practice is very common. The coastal beach is more scientifically defined, which is defined as a living, inhabiting and breeding life for coastal living beings. The intertidal zone, the upper tidal zone and the subtidal zone are the basis of the state material. The tidal zone and the intertidal flat surface are wide and narrow, ranging from tens to thousands of meters, and the subtidal zone is a region where the water depth of the tide is not more than 6 meters. The coastal mudflat can be divided into different species according to the standard of different division. It can be divided into three kinds of mudflat, sand beach and rock beach. According to the standard of ecological display, it can be divided into two kinds of bare beach and biological beach. Among them, the beaches can be subdivided into three kinds of beach, mangrove beach and coral reef. According to the standard of its morphological change, it can be divided into stable beach, silt - up beaches, three erosive beaches. These features have the characteristics of sea land boundary, dynamic change and ecology, which show the uniqueness of coastal tidal flat.
In addition to the vague concept, the relevant laws of our country have not made a very clear orientation to the nature of the coastal beach. The academic circles also follow the dual method of "non land or sea area", which makes the tidal zone, intertidal zone and the subtidal zone in the coastal tidal flat are divided into different legal adjustments, resulting in the protection of coastal beaches. In order to realize the effective protection of the coastal beach, it is necessary to break this kind of thinking pattern and follow the thought of the three division, which will be divided into three properties, namely, "land, sea area, coastal zone", and the coastal mudflat into the coastal zone, to achieve the consistency of the tidal zone along the beach, the intertidal zone and the subtidal zone, and will be painted along the beach. Protect a whole.
The coastal beach plays an important role in regulating the climate, preserving biodiversity and purifying the coastal environment. However, the coastal beach has been degraded seriously in China: the area of coastal beaches is constantly subjected to natural erosion and artificial invasion, the biodiversity is decreasing, and the pollution of the beach is increasingly serious. The serious degradation of the coastal tidal flat makes the coastal mudflat seriously degenerate The ecological function of the coastal beaches in China is seriously degraded. There are some problems in the management system, laws and regulations and the means of adjustment of the coastal beaches in our country. The management system of the coastal beach is a decentralized management system, the water conservancy department, the Marine Department, the forestry department, the agriculture (fishery) sector, and the land. The administrative and regulatory authority of the Department and the environmental protection department all have management and regulation. The coastal beach management system is a management system which is "local and central," is a kind of environmental protection management system which belongs to the economic development. At present, there is no special legal and administrative regulations on Coastal shoal and the coastal beach. The local regulations and regulations are mainly based on the economic development of the tidal flat rather than the ecological protection. The coastal beach adjustment means set by the local regulations and regulations are single, mainly including three adjustment means: "environmental permit for the development of tidal flat, environmental planning for tidal flat development, administrative penalties for illegal exploitation of beach and environmental damage". The three adjustment means are in fact In the process of operation, attention should be paid to the entry control and terminal control of coastal beach, rather than process control.
The reason why the coastal beach protection has the above problems in the management system, laws and regulations and the means of adjustment can be summed up in three aspects: paying attention to the value cognition of the resources rather than the ecology, based on the scattered but not comprehensive institutional roots, focusing on the port instead of the process. In other words, the coastal beach protection has "resources". In order to realize the effective protection of the coastal beach and realize the balance between the economic development of the beach and the ecological protection, the key is to change the thought of the legal protection of the coastal beach and uphold the basic principles of "ecological, comprehensive and process", and construct the ecological protection legal mechanism of the coastal beach and the comprehensive management system. The ecological principle is the basic principle of the coastal beach protection, and the comprehensive principle and the process principle are the extension and guarantee of the ecological principle.
The ecological protection of coastal beach can be realized through the ecological protection legal mechanism of coastal beach. The legal mechanism of ecological protection includes three aspects: the legal mechanism of "zero net loss" in coastal beach, the legal mechanism of coastal beach functional zoning, the legal mechanism of ecological compensation for coastal beach, and the formation of three legal mechanisms. The legal mechanism of "zero net loss" establishes the protection area of the national beach and the requirements for development. The legal mechanism of functional zoning is classified according to the types and distribution of the beaches, and the legal mechanism of ecological compensation will balance the exploitation and protection of the beach. The three legal mechanisms are not finished. Totally negating the development and utilization of tidal flat, but it can change the development attributes of coastal tidal flat resources, thus achieving its ecological conservation attribute.
The comprehensive protection of coastal beach can be realized through the comprehensive management system of coastal beach. Following the ideas of the world's environmental protection, the core of the construction of the coastal beach comprehensive management system is the establishment of a comprehensive coastal beach comprehensive management committee with a reasonable authority and a reasonable framework. The staff will need to realize the agreement with the coastal zone management institutions and provide a platform for communication and coordination for water conservancy departments, marine departments, forestry departments, agriculture (fishery) departments, land departments and environmental protection departments, so as to realize the relationship between the management bodies of coastal beaches and the relationship between the central and the local.
The process of coastal tidal flat protection can be realized through the construction of the coastal beach adjustment means system. The perfect adjustment means system of coastal beaches should include the administrative adjustment system and the economic adjustment system of coastal beaches. The administrative adjustment means are based on command control, with the standard of tidal flat environment, and the planning of the beach environment, The tidal flat environmental impact assessment, the tidal flat environment development license, the beach environment damage punishment, etc., the economic adjustment means system is based on the incentive and guidance, including the tidal flat development right transaction, the beach development deposit, the beach development tax / fee, the beach protection subsidy, etc. two major categories of adjustment hand system form pre incident prevention, event monitoring and ex post compensation The complete system should avoid the port management and control crux of coastal beach protection, which focuses on "ex post punishment, less than prior prevention", so as to achieve process adjustment.

【学位授予单位】：中国海洋大学
【学位级别】：博士
【学位授予年份】：2013
【分类号】：D922.68

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