关于渤海特别法的执行体制的思考

Reflections on the Implementation System of Bohai Sea Special Law

制定渤海特别法是目前海洋管理部门与学界关注的热点话题,而其中执行体制的规定则是制定这部法律首先需要解决的难点问题。权威数据显示,现行的法律在现行的执行体制下的实施没有对渤海产生理想的管理效果。因此,讨论渤海特别法的执行体制就要选择新的体制。影响渤海特别法执行体制选择的决定性因素有三个:第一个是自然因素。渤海是一个半闭海,是我国唯一的内海,构成一个独立的环境单位,渤海作为一个完整的大生态系统,这就要求把渤海当成一个整体来对待。第二个是行政区划因素。渤海沿岸有4个省和直辖市,与渤海环境管理有关的共有10个省、自治区和直辖市,这些行政区划单位管理上存在的"搭便车"的可能,从而导致"公地的悲剧"。第三个是管理层级因素。从中央、省市自治区到市、县,构成渤海管理的"四级宝塔",这"四级宝塔"却并不总是一个保持高度一致的执法体系。在这三个因素存在的前提下,首先,渤海特别法应当选择目标导向的执行体制,将渤海环境管理作为目标,通过目标的约束促发执法者的积极性,再由执法者调动行政相对人的行动。其次,渤海特别法应当选择共同负责的执行体制,建立一个由渤海周边行政区参加渤海环境管理机关,各行政区对渤海环境管理共同负责。最后,渤海特别法应当选择政府责任的执行体制。渤海环境保护是政府责任,而不仅仅是政府职能部门的责任,应当把法律所要求的渤海环境保护融入有关层级的整个政府政策的统一体中,使之始终与其它政策相互影响、相互协调。

At present, to formulate Bohai Sea special law is becoming the hot topics in the marine management departments and academia, and to establish the legal implementation system is one of the difficult issues which need to be addressed first. The existing legal system does not make ideal effects in the Bohai Sea Sea＇ s management under the current legal implementation system based on an authoritative data. Therefore, it is necessary to select a new system in discussing the legal implementation of Bohai Sea special law. There are three decisive factors which affect the enforcement system choice of Bohai Sea special law： the first factor is the natural characteristic. As the only inland sea in China, Bohai Sea is a semi -enclosed sea, and constitutes an independent environmental unit and a complete ecosystem, which requires the Bohai Sea be treated as a whole. The second factor is the administrative division. There are four provinces and municipalities surrounding Bohai Sea, and there are ten provinces, autonomous regions and municipalities related to the Bohai Sea environmental management. All these administrative units exists the possibility of the ＇ free rider＇ in the environmental management and leads to ＇ tragedy of the commons＇. The third factor is the administrative hierarchy. There have ＂four pagodas＂ in Bohai Sea management, which are the central government, provinces, cities and counties. However, they are not always a highly consistent enforcement system. According to these three factors, firstly, a target - oriented legal implementation should be selected in Bohai Sea special law. The Bohai Sea environmental management will be the objective that legal enforcement agencies will try their best to realize by regulating actions of administrative relative persons. Secondly, a jointly responsible implementation system should be choosen in the Bohai Sea special law, and this agency will be composed of respective administrative regions surrounding the Bohai Sea which are responsible for environmental quality of Bohai Sea. Finally, the governmental responsibility should be emphasized in legal implementation system of Bohai Sea special law. Environmental protection of Bohai Sea is an important governmental responsibility. We should integrate environmental protection into every governmental level unity related to the Bohai Sea, and make sure them to interact with other policies.