我国海洋环境陆源污染治理的政策实施研究

发布时间：2018-07-28 08:43

【摘要】：进入21世纪以来，海洋已经成为世界各国关注的焦点。中共十八大报告中提出，要“提高海洋资源开发能力，发展海洋经济，保护海洋生态环境，坚决维护国家海洋权益，建设海洋强国”。随着“海洋强国”战略的提出，向海洋要资源、要增长、要空间、要环境、要财富是我国经济发展的必然方向。然而，随着我国海洋经济的持续发展，海洋环境污染问题也日益严重。根据国家海洋局发布的《2012年中国海洋环境状况公报》显示，2012年我国近岸海域污染依然严重，经由陆地径流和陆源入海排污口进入海洋的污染物达1900多万吨，占海洋污染物总量的近80%，陆源污染已经成为我国海洋环境污染的主要来源。我国政府自上世纪90年代开始重视陆源污染问题，在近30年的时间里已经形成了包括《中华人民共和国海洋环境保护法》和《中华人民共和国防治陆源污染物污染损害海洋环境管理条例》等17部相关法律法规在内的政策体系，对陆源污染治理进行了详细规范，然而治理效果并不明显，陆源污染物的排放量持续增加。笔者认为，除去陆源污染治理政策自身不完善的因素之外，政策实施过程中存在的各种问题才是导致治理效果不佳的主要原因。文章运用文献分析法和归纳论证法进行研究，对国内外有关陆源污染治理的研究进行了梳理，发现目前国内的研究多从法律制度和技术手段两个方面展开，针对既有治理政策实施的研究并不深入。因此，文章从我国海洋环境陆源污染治理政策着手，在对我国有关陆源污染治理政策进行系统梳理的基础上，找出政策内容上的缺陷，并以《防治陆源污染物污染损害海洋环境管理条例》为例进一步剖析了政策实施的现状以及实施过程中面临的困境，进而提出了我国陆源污染治理政策有效实施的对策和建议，以期改善陆源污染治理政策实施不佳的现状，达到更好的治理效果。文章在结构上分为五章：第一章首先对全文涉及到的核心概念进行了阐述，分别介绍了海洋环境污染、陆源污染及其种类以及陆源污染治理政策及其实施的相关内容。重点阐述了陆源污染的相关概念、梳理了陆源污染的种类，并界定了作为本文研究对象的“陆源污染”。其次，对为何以治理政策实施为研究重点做出了说明。第二章从我国现有陆源污染治理政策入手，按照国家法律、行政法规、部委规章和技术规程的分类原则，对我国现有的陆源污染治理政策进行了梳理，通过梳理厘清了其发展脉络和总体状况，在此基础上评述了现有政策存在的缺陷。第三章则以《防治陆源污染物污染损害海洋环境管理条例》为例，以《管理条例》的实施效果为前提，，重点分析了现有政策的实施中存在的问题。并以此为背景进一步分析了我国陆源污染治理政策实施过程中存在问题的成因。通过分析发现，《管理条例》实施中存在的主要问题是：国家环保部未能推动其有效实施；部分规定虚置未能实施；基层环保部门对其执行不力；《管理条例》的实施过度依靠行政命令；排污企业违反《管理条例》规定的现象普遍存在；社会公众对《管理条例》实施的关注度较低。本文进一步分析认为不完善的政策体系和实施机制，单一的执行主体和实施手段，以及疲软的政策实施监督是目前我国陆源污染治理政策实施过程存在问题的主要成因。第四章主要介绍了日本和澳大利亚陆源污染治理政策实施过程中的成功经验，通过归纳分析发现两国的成功存在共同特点，即：多元的政策实施主体、多样的政策落实手段以及高效的政策执行监督，这些成功经验为我国提供了借鉴。第五章针对我国海洋环境陆源污染治理政策实施过程中存在的问题及成因，从政策内容、政策实施主体、政策实施手段和政策实施监督四个方面，阐述了改善我国陆源污染治理政策实施的对策措施。
[Abstract]:Since twenty-first Century, the ocean has become the focus of attention all over the world. In the eighteen major reports of the Communist Party of China, the Communist Party of China has proposed to "improve the capacity of marine resources development, develop marine economy, protect the marine ecological environment, resolutely safeguard the national marine rights and interests and build a marine power". With the proposal of the "marine power" strategy, the resources of the ocean should be increased. Long, space, environment, and wealth are the inevitable direction of our country's economic development. However, with the continuous development of China's marine economy, the problem of marine environmental pollution is increasingly serious. According to the bulletin of the state of China's marine environment issued by the State Oceanic Administration in <2012, the pollution of the coastal waters of China in 2012 is still serious, through land runoff and The pollution of land source into the sea is about 19000000 tons, accounting for nearly 80% of the total amount of marine pollutants. The land source pollution has become the main source of marine environmental pollution in China. The government of our country began to pay attention to the issue of land source pollution since the 90s of last century. In the last 30 years, it has been formed including the People's Republic of China ocean ring. The policy system of 17 relevant laws and regulations, such as the border protection law and the regulations on the prevention and control of the pollution damage to the marine environment in People's Republic of China, has been standardized in detail. However, the effect of the land source pollution is not obvious, and the discharge of the land source pollutants continues to increase. The author thinks that the administration of land source pollution is eliminated. Besides the factors that are not perfect, the problems in the implementation of the policy are the main reasons leading to poor governance.
In this paper, the literature analysis and inductive method are used to study the research on the land source pollution control at home and abroad. It is found that the domestic research is mostly carried out from two aspects of the legal system and technical means, and the research on the implementation of the existing governance policy is not thorough. On the basis of the systematic combing of the policies of land source pollution control in China, we find out the defects in the policy content, and take the "prevention and control of the pollution damage to the marine environment" as an example to further analyze the current situation of the policy implementation and the difficulties faced in the implementation process, and then put forward Lu Yuanwu in China. The countermeasures and suggestions for the effective implementation of the pollution control policy are made in order to improve the current situation of the poor implementation of the land source pollution control policy and achieve better results of governance. The article is divided into five chapters in the structure.
The first chapter first expounds the core concepts involved in the full text, introduces the marine environmental pollution, the land source pollution and its types, and the related contents of the land source pollution control policy and its implementation. It focuses on the related concepts of land source pollution, combs the types of land source pollution, and defines the "land" as the object of this study. Secondly, it explains why the implementation of governance policy is the focus of research.
The second chapter, starting with the existing land source pollution control policies in China, combs the existing land source pollution control policies in China according to the national laws, administrative regulations, ministries and regulations and technical regulations, and clarifies the development and overall situation of the current land source pollution control. On this basis, it reviews the existing shortcomings of the existing policies.
The third chapter takes the "prevention and control of land source pollution damage to the marine environment management regulations" as an example, and focuses on the existing problems in the implementation of the existing policies, based on the implementation effect of the management regulations, and further analyzes the causes of the problems in the implementation of the land source pollution control policy in China. The main problems in the implementation of the regulations are that the Ministry of environmental protection has not been able to promote its effective implementation; some of the regulations have not been put into practice; the environmental protection departments at the grass-roots level are not able to implement them; the implementation of the regulations on management is overly dependent on Administrative orders; the phenomenon of violating the regulations of the discharge enterprises is common; the public is on the "pipe". The main cause of the existing problems in the implementation of land source pollution control policy in China is that the imperfect policy system and implementation mechanism, the single executive body and the implementation means and the weak policy implementation supervision are further analyzed in this paper.
The fourth chapter mainly introduces the successful experience of the policy implementation of the land source pollution control policy in Japan and Australia. Through the induction and analysis, we find the common characteristics of the two countries' success, that is, the multiple policy implementation subjects, various policy implementation means and efficient policy implementation supervision. These successful experiences provide the reference for our country.
The fifth chapter expounds the Countermeasures of improving China's land source pollution control policy in four aspects, including the policy content, the policy implementation subject, the policy implementation means and the policy implementation supervision, aiming at the problems and causes in the implementation of the land source pollution control policy in China's marine environment.
【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】：X55

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