流域立法的审思与完善——以《黄河保护法(草案)》为中心

The Reflect on Water Basin Legislation:the Focus on the Draft of Yellow River Protection Act

在习近平生态文明思想、习近平法治思想被相继确立,“黄河流域生态保护和高质量发展”被确立为国家战略,以及流域管理“实质法治”重要性不断凸显等背景下,我国黄河流域立法被提上议事日程,流域立法体系不断完善。黄河流域现行立法无法协调上、中、下游之间利益冲突,使得以协同治理理论指导当前流域立法最为适宜。2021年12月公布的《黄河保护法(草案)》,相较于原征求意见稿有一定进步,但在立法目的、基本原则、流域管理体制、立法内容具体定位、流域立法与现有“水事四法”的关系等方面还存在一定问题。针对目前草案中的不足,首先,应当明确黄河流域立法的具体定位是“保护法”而非“保护法+促进法”;其次,应从黄河流域实际现状出发“量身打造”流域管理体制;最后,应当针对性设计流域相关规范以明确与“水事四法”的关系。

Under the background that Xi Jinping thought of ecological civilization and Xi Jinping thought of rule of law have been established successively,"ecological protection and high-quality development of the Yellow River basin"has been established as a national strategy,and the importance of"substantial rule of law"in watershed management has become increasingly prominent,China’s Yellow River basin legislation has been put on the agenda,and the watershed legislation system has been constantly improved.The current law of the Yellow River basin cannot coordinate the conflicts of interests between the upper,middle and lower reaches,so it is suitable to use the theory of collaborative governance to guide the current legislation of the Yellow River basin.The Yellow River Protection Law(Draft)published in December 2021 has made some progress compared with the original draft for soliciting opinions,but there are still some problems in the legislative purpose,basic principles,basin management system,specific positioning of legislative content and the relationship between basin legislation and the existing"four laws on water affairs.In view of the deficiencies in the current draft,first of all,it should be made clear that the specific orientation of the Yellow River basin legislation is"protection law"rather than"protection law+promotion law".Secondly,from the actual situation of the Yellow River basin"tailored"watershed management system;Thirdly,relevant watershed regulations should be designed to clarify the relationship with the"four laws on water affairs".