我国城市饮用水全过程控制法律制度研究

发布时间：2018-07-15 10:53

【摘要】：城市饮用水安全问题直接关系着公民的生命权和健康权。然而，近年来我国城市饮用水事件频发，威胁着城市饮用水安全。影响城市饮用水安全的因素发生在城市饮用水保护的各个环节——城市饮用水源地、供水系统、城市饮用水管网。因此，，城市饮用水应加强对各个环节及其衔接处的保护与控制，即实现城市饮用水的全过程控制。从我国城市饮用水保护的立法看，我国城市饮用水法已经历了四个发展阶段——萌芽阶段、水质标准规制阶段、源头控制阶段、安全保障阶段，形成了从宪法、法律到地方性法规、地方政府规章的法律体系，但其还存在一定的缺陷：实行多部门分段管理模式，行政效率低下；多部门分散立法，部分法律规定相互冲突；法律规定原则化，可操作性差；难以实现因城市饮用水造成人身财产损害的有效救济等。因此，城市饮用水立法应在全过程控制理念的指导下，建立城市饮用水的全过程控制法律制度。全过程控制由过程控制发展而来，并且由其他领域逐步应用到环境法领域。我国城市饮用水的全过程控制是指由水务协调委员会协调城市饮用水监管部门间的关系，对城市饮用水安全实行“从源头到龙头”的监测与管理制度。其具体构建包括全程性法律制度和阶段性法律制度。我国城市饮用水管理制度横向上分割管理，职责交叉重复，纵向上缺乏统一协调部门进行管理。在借鉴我国食品安全领域及国外城市饮用水管理制度的基础上，提出了构建城市饮用水统一协调管理制度。设立水务协调委员会，在其内下设水务协调委员会管理办公室对城市饮用水日常事务进行管理，并通过城市饮用水法的形式明确各部门的职责，避免交叉重复。还提出了对城市饮用水统一协调管理制度具有重要支撑作用的制度：部门联席会议制度及城市饮用水信息共享制度。此外，我国城市饮用水全程性法律制度还包括城市饮用水监测法律制度、城市饮用水标准法律制度及城市饮用水信息公开制度等，在分析我国相关法律制度缺陷的基础上，提出了完善的建议。城市饮用水阶段性法律制度对城市饮用水的各个环节实施重点保护。城市饮用水源保护区法律制度重点加强对城市饮用水源的保护；职业人员资格认证培训制度和城市饮用水循环基金制度确保城市饮用水供水系统水质达标；城市饮用水管网安全输配制度保障城市饮用水管网的供水安全。其中，后三项法律制度在我国法律领域还是一片空白，在借鉴外国相关法律制度经验的基础上，提出了构建的具体措施。城市饮用水全过程控制法律制度是为应对城市饮用水保护中的问题提出的，其有助于实现职能部门的权责明晰，提高行政效率；消除法律规定间的冲突，实现协调；加强城市饮用水保护前后环节的衔接，实现信息资源共享，对保障城市饮用水安全意义重大。
[Abstract]:The safety of urban drinking water is directly related to the right to life and health of citizens. However, in recent years, urban drinking water incidents occur frequently in China, threatening the safety of urban drinking water. The factors affecting the safety of urban drinking water occur in all aspects of urban drinking water protection-urban drinking water source, water supply system, urban drinking water network. Therefore, urban drinking water should strengthen the protection and control of every link and its junction, that is, to realize the whole process control of urban drinking water. From the legislation of urban drinking water protection in our country, the urban drinking water law of our country has gone through four stages of development-budding stage, water quality standard regulation stage, source control stage, safety and security stage, which has formed the constitution. The law system from law to local regulation, local government regulation, but it still has some defects: implement multi-department section management mode, administrative efficiency is low, multi-sector decentralized legislation, some laws and regulations conflict with each other; It is difficult to realize the effective relief for the damage caused by urban drinking water. Therefore, under the guidance of the whole process control concept, the urban drinking water legislation should establish the whole process control legal system of the city drinking water. Whole process control is developed from process control and applied to environmental law by other fields. The whole process control of urban drinking water in our country means that the coordination committee of water affairs coordinates the relationship between the supervision departments of urban drinking water, and carries out the monitoring and management system of "from the source to the leading" to the safety of urban drinking water. Its concrete construction includes the whole process legal system and the stage legal system. The urban drinking water management system in China is divided horizontally, with overlapping responsibilities and lack of unified coordination department. On the basis of drawing lessons from the field of food safety in our country and the management system of drinking water in foreign cities, this paper puts forward a unified and coordinated management system for urban drinking water. The water coordination committee is set up, and the management office of the water affairs coordination committee is set up under it to manage the daily affairs of urban drinking water, and through the form of the urban drinking water law, the responsibilities of various departments are clarified, and the overlapping and repetition are avoided. It also puts forward the system which plays an important role in supporting the unified and coordinated management system of urban drinking water: the system of joint department meeting and the system of information sharing of urban drinking water. In addition, the whole process legal system of urban drinking water in China also includes the legal system of urban drinking water monitoring, the legal system of urban drinking water standard and the system of information disclosure of urban drinking water, etc. On the basis of analyzing the defects of relevant legal systems in China, Some suggestions are put forward. The stages of urban drinking water legal system to urban drinking water implementation of each link key protection. The legal system of the urban drinking water source protection area focuses on strengthening the protection of the urban drinking water source, the qualification training system for professional personnel and the urban drinking water circulation fund system to ensure that the water quality of the drinking water supply system of the city is up to standard; Urban drinking water network safety transmission and distribution system to ensure the safety of urban drinking water network water supply. Among them, the latter three legal systems are still blank in the legal field of our country. On the basis of drawing lessons from the experience of foreign relevant legal systems, the author puts forward some concrete measures to construct them. The legal system of the whole process control of urban drinking water is put forward to deal with the problems in the protection of urban drinking water, which is helpful to realize the clarity of power and responsibility of the functional departments, to improve the administrative efficiency, to eliminate the conflicts between the laws and regulations, and to realize the coordination. It is of great significance to strengthen the link before and after the protection of urban drinking water and to realize the sharing of information resources to ensure the safety of urban drinking water.
【学位授予单位】：中国海洋大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：D922.181

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