【作者】 王义刚； 夏雪瑾； 冯媛媛；

【Author】 WANG Yi-gang,XIA Xue-jin,FENG Yuan-yuan(Key Laboratory of Coastal Disaster and Defense by Ministry of Education,Hohai University,Nanjing 210098,China)

【机构】 河海大学海岸灾害及防护教育部重点实验室；

【摘要】 针对我国相关部门在实施《海域使用管理法》时,存在对管辖权认识不一致的情况,对焦点所在的海岸线确定、滩涂归属问题以及河海划界进行讨论。通过对国外沿海各国确定的海岸线现状的考察以及对国内涉海管理工作实践经验的分析,认为海岸线应为平均大潮高潮线。对于滩涂归属问题,由于国内现有法律对潮间带滩涂性质的确定存在矛盾,从两方面对潮间带滩涂性质进行分析。从滩涂本身特点来说,潮间带滩涂受海洋动力影响较大且与海洋联系密切,将其从海域管理工作中割裂出来,易造成海洋生态系统的严重损害。而从滩涂归属权国际实践来看,以平均高潮线为海岸线的国家大多将潮间带滩涂归属于海域。因此认为高潮线以下滩涂应属海域,并提出3点建议:(1)基于国内滩涂使用与支配事实的历史成因,建议监督和管理功能分由两个部门负责,海洋部门起监督作用,仍由原来沿海各省主管滩涂开发的部门开发滩涂,这样也有利于滩涂开发管理的持续性和滩涂资源的保护;(2)对于海域使用许可权,建议采用多项许可证制度,既避免主管部门滥用行政权力,损害其他部门的利益,同时也使开发利用项目得到周密的审查,避免其对海洋生态、海洋环境产生不利影响;(3)在审批权限方面,考虑各省滩涂自然条件不一、经济发展重点不一的情况并借鉴国际实践,建议适当扩大地方政府和地方海洋管理部门对海域管理的权限。河海分界是海岸线确定的难点。对于河海分界问题,认为河海划界是社会行为,是对在河海交汇区域里的管理行为及其职责、义务的分类和界定,应满足遵守自然客观规律、有利于社会稳定团结和资源可持续发展以及综合考虑多方面因素这3项原则。从3方面讨论了河口的归属问题。并建议主要江河的河海界线以河口口门和口外海滨段的内端为界,即河口的近口段和河口段应属河,河口的口外海滨段属海。在一些小的入海河流可以明显的标志物(如挡潮闸、桥等)作为河海分界线。更多还原

【Abstract】 In view of the different cognitions on the jurisdiction among relevant departments in the implementation of Sea Area Utilization Management Law,some key points including determination of the coastline,ascription of beach and river-sea delimitation are discussed.Based on the present status of the coastline in foreign maritime countries and domestic practice of marine administration,we hold that the coastline should be the high water line at ordinary spring tides.In view of the contradictions in the national laws in defining the legal nature of inter-tidal beach,the nature of inter-tidal beach is analyzed from two aspects.According to the natural characteristics of the beach,the inter-tidal beach is closely related to the sea and is influenced by marine power more greatly.If this area is separated from the sea management,it will be easy to damage the marine ecosystems seriously.Moreover,according to the international practice for the ownership of beach,most of the countries that use the mean high tide line for the coastline incorporate the inter-tidal beach into the sea area.So this paper holds that the beach below the high tide line belongs to sea,and puts forward three proposals:(1) In view of the historical practice on the beach,it is suggested that the functions of supervision and management should be under two separate governmental departments.The department of marine administration takes responsibility of supervision,and the department which is originally in charge of the exploitation of the beach in maritime province maintains the responsibility of the management of the beach.This is advantageous to the continuity of the management of the beach exploitation and the protection of beach resources.(2) For the licence of the sea area utilization,multiple licensing system is proposed to avoid power abuse of the responsible department and injuring the interests of other departments on one hand and to guarantee a thorough examination on the development project to avoid bringing about disadvantageous influence on ocean ecosystem and ocean environment on the other hand.(3) For the power limits of examination and approval,in view of different natural conditions of beach and different focus of economic development in different provinces,it is suggested to appropriately expand the jurisdiction of the local government departments in the management of sea area utilization.The difficulty of river-sea delimitation lies in determination of the coastline.The author believes that river-sea delimitation is a social behavior to classify and define the management behavior and obligations in the region of river-sea intersection.So it should follow three principles,that is,obeying natural law,being advantageous to social stability and sustainable development of resources and considering a variety of factors.The ownership of estuary is discussed in three aspects:From the geographic attributes of estuary,runoff plays a major role in the estuary near the mouth while the effect of the sea is only expressed as the rise and fall of the tidal level.And downward the effect of tide becomes more and more significant till the coastal section outside the entrance,where the action of runoff is weakened because of diffusion and sea dynamics plays the major role.From the function of estuary,the administration and exploitation of the estuary resources are developed together with the social and economic development in the land area.Estuary development is based on land area and also promotes the economic development of the land area.It has few to do with the sea development.For the current conditions of the development and utilization of estuary,an overall point of view for the administration and exploitation of estuary resources is deficient in our country.Comprehensive development and administration of the estuary should be exercised and a special organ is needed for the coordination and management.Therefore,it is concluded and suggested that river-sea boundary of major rivers is defined by the border of estuary entrance and the inside end of the near shore beach,e.g.,the zone near the estuary entrance and the upper segment of estuary should belong to river and the near-shore beach should belong to sea.In some small estuary,some obvious marks such as tidal gates,bridges can be used as the boundary between river and sea.更多还原