海洋环境监测法研究
发布时间：2018-07-24 10:24
【摘要】：一 在海洋环境保护的实践中,海洋环境监测发挥了重要作用,作为海洋环境保护的重要工具,海洋环境监测不仅为制定海洋环境保护政策、措施提供了重要依据,也为满足广大公众环境知情权提供了依据。但是,要想进一步加强海洋环境监测,更好地发挥海洋环境监测在海洋环境保护中的作用,仅仅靠现行环境法律中支离破碎的几条规范是不够的。我国必须尽快建立专门的环境监测立法。建立环境监测法是加强海洋环境监测工作管理和规范监测行为的需要,是在海洋环境保护中实现数据共享和避免重复建设的需要。建立一部完整的海洋环境监测法,有助于加强海洋环境监测信息发布管理,提升政府公信力,也有利于确保监测数据合理使用的需要。 二 海洋环境监测法显然不是在法律真空中另起炉灶的一个法律体系,而是弥补现有法律体系不足的一项补充立法。它应当是一国法律体系的有机组成部分。从我国法律体系的现状看,海洋环境监测法有其立法基础。大致说来,环境法是海洋环境监测立法的根本性基础,海洋环境法是海洋环境监测立法的直接基础,而海洋管理制度性需求是海洋环境监测法的现实基础。 三 “海洋环境监测法”中最核心的词汇就是“监测”。“监测”由“监”与“测”两部分组成,“监”是指监督,体现管理的内涵,“测”是指测量测试,体现了技术层面的含义。明确监和测的区别,按照两者分离的原则规划监测的立法是使监测法充分发挥海洋管理手段作用的关键。当两者由两个相互独立的主体来进行行为时,监测出的数据的客观真实性才能得到保障,才能更加有效地使用监测数据为海洋管理服务。实践中将监督与测量混为一谈的做法表现为管理者与测量者不分,而其结果常常是监测数据按长官意志产生,监测活动随管理者态度的变化而变化。 海洋环境监测制度是海洋环境监测法的核心。我国现行法律中的海洋环境监测制度包括海洋环境监测站的管理制度、环境监测网的管理制度、环境监测报告制度、环境监测仪器设备管理制度、监测数据资料的管理制度、环境监测质量保证管理制度、监测人员合格证制度等。自1982年我国颁布《海洋环境保护法》以来,我国逐步形成了国家与地方相结合的海洋环境监测体系。这个体系主要由监测管理机构和监测业务机构组成。 海洋环境监测管理机构是海洋环境监测管理的组织保证。国家海洋行政主管部门负责海洋环境的监督管理,组织海洋环境的调查、监测、监视、评价和科学研究,负责全国防治海洋工程建设项目和海洋倾倒废弃物对海洋污染损害的环境保护工作。国家海洋局是国务院管理海洋事务的职能部门,全面负责全国的海洋环境的监督管理,组织海洋环境的调查、监测、监视、评价和科学研究。国家海洋局下设的北海分局、东海分局和南海分局分别负责北海区(渤海、黄海北部)、东海区和南海区的海洋环境监测管理工作。沿海11个省(自治区、直辖市)人民政府设立了海洋行政管理机构,负责组织本省(自治区、直辖市)的海洋环境调查、监测、监视和评价,监测监视海洋自然保护区和特别保护区,组织海洋环境观测、监测、灾害预报警报。沿海各市(地区)人民政府设立的海洋环境监测管理机构,按照国家和省的要求,结合本地区的实际,组织本地区的的海洋环境调查、监测、监视和评价,组织海洋环境观测、监测、灾害预报警报。沿海大部分县(区、市)也设立了海洋环境监测管理机构,按照国家和上级的要求,组织实施本县(区、市)的海洋环境调查、监测、监视和评价。 海洋环境监测业务机构是海洋环境监测的操作机构。我国的海洋环境监测业务机构体系由国家海洋环境监测中心、海区环境监测中心、沿海省(自治区、直辖市)海洋环境监测总站(中心)、沿海市(地)海洋环境监测中心(站)、国家海洋局所属海洋环境监测中心站和海洋环境监测站等监测机构组成。 四 由于没有建立专门的《海洋环境监测法》,我国现有海洋环境监测制度存在诸多问题,主要包括： (1)海洋环境监测缺乏统筹规划。这主要表现在：各个环境监测专项之间缺少衔接,重复监测；基础性综合性监测少,重要资料不能进行长期积累,关键数据得不到及时更新；缺少顶层设计,监测工作长期处于应急状态。 (2)海洋环境监测活动缺乏监管。这主要表现在：多头管理,资源浪费严重；监测设施随意布放,重要监测数据存在失密隐患；部分监测单位监测能力和人员素质不能满足监测工作的专业化要求；监测过程缺少质量监督,监测数据可靠性差。 (3)海洋环境监测资料共享不畅。这主要表现在：监测资料统一汇交管理制度不健全,数据资源分散；在监测资料管理上没有形成协调机制,信息共享不畅；资料管理和服务水平低,社会公益服务功能不强。 (4)监测设备、技术自主创新能力较低,支撑能力不够。这主要表现在：国产化程度低,依赖进口,关键仪器设备进口受限制；对监测设备技术创新投入不足；海洋科技条件和基础设施平台建设落后,创新基础薄弱。 (5)监测标准化程度有待提高。这主要表现在：监测标准制修订技术机构和体系尚未建立,监测标准数量偏少,更新速度慢；监测标准的数量和质量亟待提高；监测标准的执行力度不够,标准化公益服务水平较低。 (6)监测保障水平不高。这主要表现在：监测工作缺乏稳定的资金投入,尚未列入国家财政固定科目；监测队伍规模小,特别是缺乏专业化的环境监测队伍；监测设备数量少,更新慢,功能单一等。 要克服我国现有海洋环境监测制度存在的问题,改善海洋监测,当务之急就是建立专门的《海洋环境监测法》,在立法中做出有利于上述问题解决的安排。 五 我国的海洋环境监测法应贯彻公众参与原则、政府主导原则、开放性原则、科学性原则、预防优先原则和协同合作原则。在具体监测制度方面,应当充分考虑：(1)加强海洋环境监测工作的总体规划与统筹；(2)建立海洋环境监测共享体系；(3)强化海洋环境监测监管力度；(4)建立海洋环境监测信息共享体系；(5)完善海洋环境监测标准化体系；(6)推动海洋环境监测的科技创新；(7)完善海洋环境监测保障机制。
[Abstract]:One
In the practice of marine environmental protection, marine environmental monitoring plays an important role. As an important tool for marine environmental protection, marine environmental monitoring provides not only an important basis for the formulation of marine environmental protection policies and measures, but also a basis for meeting the public's right to know the environment. However, the marine environment supervision should be further strengthened. It is not enough to give full play to the role of marine environmental monitoring in marine environmental protection. It is not enough to rely solely on the fragmented norms in current environmental laws. China must establish special environmental monitoring legislation as soon as possible. The establishment of environmental monitoring law is the need to strengthen the management of marine environmental monitoring and the regulation of the monitoring behavior. The establishment of a complete marine environment monitoring method will help to strengthen the management of marine environmental monitoring information, enhance the credibility of the government, and ensure the need for the rational use of the monitoring data.
Two
The marine environmental monitoring law is obviously not a legal system in the legal vacuum, but a supplementary legislation to make up for the shortage of the existing legal system. It should be an organic part of the legal system of a country. From the current situation of our legal system, the marine environment monitoring law has its legislative basis. The fundamental basis of the ocean environmental monitoring legislation is that the marine environmental law is the direct basis of the marine environmental monitoring legislation, and the institutional demand for marine management is the realistic basis of the marine environmental monitoring law.
Three
"Monitoring" is the most important word in the "marine environment monitoring law". "Monitoring" is composed of two parts: "prison" and "measurement". "Supervision" refers to supervision and embodies the connotation of management. "Measurement" refers to measurement testing, embodying the meaning of the technical level. The difference between monitoring and measurement is clearly defined and the legislation of monitoring monitoring according to the principle of separation between the two is made. It is the key to make the monitoring method fully play the role of the marine management means. When the two are carried out by two independent subjects, the objective authenticity of the monitored data can be guaranteed, and the monitoring data can be used more effectively as the marine management service. In practice, the practice of mixing supervision and measurement is shown as the manager. Independent of the surveyor, the result is often that monitoring data are generated according to the will of the supervisor, and monitoring activities vary with the attitude of the manager.
The marine environment monitoring system is the core of the marine environment monitoring law. The marine environment monitoring system in the current law of China includes the management system of the marine environmental monitoring station, the management system of the environmental monitoring network, the environmental monitoring report system, the management system of the environmental monitoring instrument and equipment, the management system of the monitoring data and data, the quality assurance of the environmental monitoring. Since the promulgation of the marine environmental protection law in China in 1982, China has gradually formed a national and local monitoring system for marine environment. This system is mainly composed of monitoring management institutions and monitoring agencies.
The marine environment monitoring and management organization is the organizational guarantee for the monitoring and management of the marine environment. The state marine administration department is responsible for the supervision and management of the marine environment, the organization of the marine environment investigation, monitoring, monitoring, evaluation and scientific research, and is responsible for the national prevention and control of marine engineering construction projects and the environment for marine pollution damage to the marine environment. The State Oceanic Administration is the functional department of the State Council in the management of marine affairs, fully responsible for the supervision and management of the marine environment in the country, organizing the investigation, monitoring, monitoring, evaluation and scientific research of the marine environment. The Beihai branch set up by the State Oceanic Administration, the East China Sea Branch and the South Sea Branch, respectively, are responsible for the Beihai district (Bohai, the northern the Yellow Sea), east of the Yellow Sea, respectively. The people's Government of 11 coastal provinces (autonomous regions and municipalities directly under the central government) has set up a marine administrative institution to organize marine environmental investigation, monitoring, monitoring and evaluation, monitoring and monitoring of marine natural protection zones and special protection zones, organizing marine environmental observation and monitoring the marine environment. The marine environment monitoring and management institutions set up by the people's governments of the coastal cities and regions of the coastal areas, in accordance with the requirements of the state and provinces and in accordance with the actual conditions of the region, organize the investigation, monitoring, monitoring and evaluation of the marine environment in the region, and organize the observation, monitoring and warning of the marine environment. Most of the coastal counties (districts and cities) have also been set up. In accordance with the requirements of the state and its superiors, the marine environmental monitoring and management institutions have organized and implemented the marine environmental investigation, monitoring, monitoring and evaluation in the counties (districts and cities).
The marine environment monitoring service organization is the operating mechanism of marine environmental monitoring. The system of marine environmental monitoring in China is composed of the national marine environment monitoring center, the marine environmental monitoring center, the marine environment monitoring station (Center) of the coastal provinces (autonomous regions and municipalities), the marine environment monitoring center (station) along the sea (land), and the State Oceanic Bureau. The marine environment monitoring center station and the marine environment monitoring station are composed of monitoring institutions.
Four
There are many problems in China's existing marine environmental monitoring system, mainly including:
(1) there is a lack of overall planning for marine environmental monitoring, which is mainly manifested in the lack of cohesion and repeated monitoring among the various environmental monitoring projects; the basic comprehensive monitoring is less, the important data can not be accumulated for a long time, the key data can not be updated in time, the top level design is lacking, and the monitoring work is in a state of emergency for a long time.
(2) the monitoring activities of marine environment are lack of supervision. This is mainly manifested in the management of multiple heads, the serious waste of resources, the random distribution of the monitoring facilities, the hidden danger of the important monitoring data, the monitoring capacity and the quality of the personnel that can not meet the professional requirements of the monitoring work; the monitoring process is short of quality supervision, and the monitoring data is reliable Poor sex.
(3) the sharing of marine environmental monitoring data is not smooth. This is mainly manifested in the unsound management system of monitoring data and the decentralization of data resources, the lack of coordination mechanism in the monitoring data management, the poor information sharing, the low level of information management and service, and the poor function of social service service.
(4) monitoring equipment, technology independent innovation ability is low, support ability is not enough. This is mainly manifested in: low degree of localization, import, import of key instruments and equipment, lack of investment in technological innovation of monitoring equipment, backward construction of marine science and technology conditions and infrastructure platform, and weak innovation foundation.
(5) the degree of standardization of monitoring needs to be improved. This is mainly manifested in that the revised technical institutions and systems of monitoring standard system have not been established, the number of monitoring standards is less and the speed of updating is slow; the quantity and quality of monitoring standards need to be improved urgently; the implementation of monitoring standards is not enough and the standard of the standard public service is low.
(6) the level of monitoring and support is not high. This is mainly manifested in the lack of stable funds in monitoring work, which has not been included in the national financial fixed subject; the scale of the monitoring team is small, especially the lack of professional environmental monitoring team; the number of monitoring equipment is small, the update is slow, and the function is single, etc.
In order to overcome the existing problems of the existing marine environmental monitoring system in China and improve the marine monitoring, the urgent task is to establish a special "marine environment monitoring law" and make arrangements to solve the above problems in the legislation.
Five
The law of marine environmental monitoring in China should carry out the principle of public participation, the principle of government leading, the principle of openness, the principle of science, the principle of priority and the principle of cooperation and cooperation. In the specific monitoring system, we should fully consider: (1) strengthen the overall planning and overall planning of the monitoring work of the marine environment; (2) establish a sharing system of marine environmental monitoring. (3) strengthen monitoring and supervision of marine environment; (4) establish a system for sharing marine environmental monitoring information; (5) improve the standardization system of marine environmental monitoring; (6) promote scientific and technological innovation of marine environmental monitoring; (7) improve the marine environmental monitoring and support mechanism.
【学位授予单位】：中国海洋大学
【学位级别】：博士
【学位授予年份】：2010
【分类号】：D922.68
本文编号：2141075
[Abstract]:One
In the practice of marine environmental protection, marine environmental monitoring plays an important role. As an important tool for marine environmental protection, marine environmental monitoring provides not only an important basis for the formulation of marine environmental protection policies and measures, but also a basis for meeting the public's right to know the environment. However, the marine environment supervision should be further strengthened. It is not enough to give full play to the role of marine environmental monitoring in marine environmental protection. It is not enough to rely solely on the fragmented norms in current environmental laws. China must establish special environmental monitoring legislation as soon as possible. The establishment of environmental monitoring law is the need to strengthen the management of marine environmental monitoring and the regulation of the monitoring behavior. The establishment of a complete marine environment monitoring method will help to strengthen the management of marine environmental monitoring information, enhance the credibility of the government, and ensure the need for the rational use of the monitoring data.
Two
The marine environmental monitoring law is obviously not a legal system in the legal vacuum, but a supplementary legislation to make up for the shortage of the existing legal system. It should be an organic part of the legal system of a country. From the current situation of our legal system, the marine environment monitoring law has its legislative basis. The fundamental basis of the ocean environmental monitoring legislation is that the marine environmental law is the direct basis of the marine environmental monitoring legislation, and the institutional demand for marine management is the realistic basis of the marine environmental monitoring law.
Three
"Monitoring" is the most important word in the "marine environment monitoring law". "Monitoring" is composed of two parts: "prison" and "measurement". "Supervision" refers to supervision and embodies the connotation of management. "Measurement" refers to measurement testing, embodying the meaning of the technical level. The difference between monitoring and measurement is clearly defined and the legislation of monitoring monitoring according to the principle of separation between the two is made. It is the key to make the monitoring method fully play the role of the marine management means. When the two are carried out by two independent subjects, the objective authenticity of the monitored data can be guaranteed, and the monitoring data can be used more effectively as the marine management service. In practice, the practice of mixing supervision and measurement is shown as the manager. Independent of the surveyor, the result is often that monitoring data are generated according to the will of the supervisor, and monitoring activities vary with the attitude of the manager.
The marine environment monitoring system is the core of the marine environment monitoring law. The marine environment monitoring system in the current law of China includes the management system of the marine environmental monitoring station, the management system of the environmental monitoring network, the environmental monitoring report system, the management system of the environmental monitoring instrument and equipment, the management system of the monitoring data and data, the quality assurance of the environmental monitoring. Since the promulgation of the marine environmental protection law in China in 1982, China has gradually formed a national and local monitoring system for marine environment. This system is mainly composed of monitoring management institutions and monitoring agencies.
The marine environment monitoring and management organization is the organizational guarantee for the monitoring and management of the marine environment. The state marine administration department is responsible for the supervision and management of the marine environment, the organization of the marine environment investigation, monitoring, monitoring, evaluation and scientific research, and is responsible for the national prevention and control of marine engineering construction projects and the environment for marine pollution damage to the marine environment. The State Oceanic Administration is the functional department of the State Council in the management of marine affairs, fully responsible for the supervision and management of the marine environment in the country, organizing the investigation, monitoring, monitoring, evaluation and scientific research of the marine environment. The Beihai branch set up by the State Oceanic Administration, the East China Sea Branch and the South Sea Branch, respectively, are responsible for the Beihai district (Bohai, the northern the Yellow Sea), east of the Yellow Sea, respectively. The people's Government of 11 coastal provinces (autonomous regions and municipalities directly under the central government) has set up a marine administrative institution to organize marine environmental investigation, monitoring, monitoring and evaluation, monitoring and monitoring of marine natural protection zones and special protection zones, organizing marine environmental observation and monitoring the marine environment. The marine environment monitoring and management institutions set up by the people's governments of the coastal cities and regions of the coastal areas, in accordance with the requirements of the state and provinces and in accordance with the actual conditions of the region, organize the investigation, monitoring, monitoring and evaluation of the marine environment in the region, and organize the observation, monitoring and warning of the marine environment. Most of the coastal counties (districts and cities) have also been set up. In accordance with the requirements of the state and its superiors, the marine environmental monitoring and management institutions have organized and implemented the marine environmental investigation, monitoring, monitoring and evaluation in the counties (districts and cities).
The marine environment monitoring service organization is the operating mechanism of marine environmental monitoring. The system of marine environmental monitoring in China is composed of the national marine environment monitoring center, the marine environmental monitoring center, the marine environment monitoring station (Center) of the coastal provinces (autonomous regions and municipalities), the marine environment monitoring center (station) along the sea (land), and the State Oceanic Bureau. The marine environment monitoring center station and the marine environment monitoring station are composed of monitoring institutions.
Four
There are many problems in China's existing marine environmental monitoring system, mainly including:
(1) there is a lack of overall planning for marine environmental monitoring, which is mainly manifested in the lack of cohesion and repeated monitoring among the various environmental monitoring projects; the basic comprehensive monitoring is less, the important data can not be accumulated for a long time, the key data can not be updated in time, the top level design is lacking, and the monitoring work is in a state of emergency for a long time.
(2) the monitoring activities of marine environment are lack of supervision. This is mainly manifested in the management of multiple heads, the serious waste of resources, the random distribution of the monitoring facilities, the hidden danger of the important monitoring data, the monitoring capacity and the quality of the personnel that can not meet the professional requirements of the monitoring work; the monitoring process is short of quality supervision, and the monitoring data is reliable Poor sex.
(3) the sharing of marine environmental monitoring data is not smooth. This is mainly manifested in the unsound management system of monitoring data and the decentralization of data resources, the lack of coordination mechanism in the monitoring data management, the poor information sharing, the low level of information management and service, and the poor function of social service service.
(4) monitoring equipment, technology independent innovation ability is low, support ability is not enough. This is mainly manifested in: low degree of localization, import, import of key instruments and equipment, lack of investment in technological innovation of monitoring equipment, backward construction of marine science and technology conditions and infrastructure platform, and weak innovation foundation.
(5) the degree of standardization of monitoring needs to be improved. This is mainly manifested in that the revised technical institutions and systems of monitoring standard system have not been established, the number of monitoring standards is less and the speed of updating is slow; the quantity and quality of monitoring standards need to be improved urgently; the implementation of monitoring standards is not enough and the standard of the standard public service is low.
(6) the level of monitoring and support is not high. This is mainly manifested in the lack of stable funds in monitoring work, which has not been included in the national financial fixed subject; the scale of the monitoring team is small, especially the lack of professional environmental monitoring team; the number of monitoring equipment is small, the update is slow, and the function is single, etc.
In order to overcome the existing problems of the existing marine environmental monitoring system in China and improve the marine monitoring, the urgent task is to establish a special "marine environment monitoring law" and make arrangements to solve the above problems in the legislation.
Five
The law of marine environmental monitoring in China should carry out the principle of public participation, the principle of government leading, the principle of openness, the principle of science, the principle of priority and the principle of cooperation and cooperation. In the specific monitoring system, we should fully consider: (1) strengthen the overall planning and overall planning of the monitoring work of the marine environment; (2) establish a sharing system of marine environmental monitoring. (3) strengthen monitoring and supervision of marine environment; (4) establish a system for sharing marine environmental monitoring information; (5) improve the standardization system of marine environmental monitoring; (6) promote scientific and technological innovation of marine environmental monitoring; (7) improve the marine environmental monitoring and support mechanism.
【学位授予单位】：中国海洋大学
【学位级别】：博士
【学位授予年份】：2010
【分类号】：D922.68
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