行业管理与“综散结合”:中国海洋管理与执法体制研究

Industrial Management and“Combination of Comprehensiveness and Decentralization”:On China’s Marine Management and Law Enforcement System

作为国家治理体系重要组成部分的海洋管理与执法体制有着自身独特的运行逻辑。通过分析2018年国家及中央涉海部门改革方案与实践后发现:与2013年国务院机构改革相比,此次改革后的海洋管理与执法体制呈现出新的运行特征与逻辑取向,即海洋管理由推动综合管理转为强化行业管理,海洋执法由“统一海上执法”转向“综散结合”的复合型执法。行业性的管理体制与“综散结合”的执法体制是相辅相成、紧密联系的统一体,在理论上能够较好地平衡管理权与执法权、集中性与分散性之间的张力,但在实践上应着重加强合作机制以及协调机构建设,避免出现碎片化的海洋管理与“综散不合”的执法困局。

As an important part of the national governance system,the ocean management and law enforcement system have unique operating logic of their own. Based on the analysis of the reform process, this paper makes an analysis of the reform plans and practices of the state and marine sectors in 2018 and finds that the reformed marine management and law enforcement system present new operational characteristics and logical orientations compared with the institutional reform of the state council in 2013. In terms of marine management,the promotion of integrated management has been shifted to the strengthening of industrial management;in terms of marine law enforcement,it has shifted from “unified marine law enforcement” to “complex law enforcement system”, which combines the comprehensiveness and decentralization. The industry-based management system and the law enforcement system of “combining comprehensiveness and decentralization” are complementary and closely related. In theory, they can better balance the tension between management power and law enforcement power, concentration and decentralization, but in practice, the government should focus on strengthening the cooperation mechanism and the construction of coordination institutions to avoid fragmented marine management and the law enforcement difficulty so as to combine the comprehensiveness and decentralization.