【作者】 王健；

【导师】 蔡守秋；

【作者基本信息】 武汉大学 ， 环境与资源保护法学， 2013， 博士

【摘要】 水是生命之源、生产之要、生态之基。人多水少、水资源时空分布不均是我国的基本国情和水情。当前我国水资源面临的形势十分严峻,水资源短缺、水污染严重、水生态环境恶化等问题日益突出,已成为制约经济社会可持续发展的主要瓶颈。①为此,党中央、国务院明确提出要实行最严格水资源管理制度。目前从总体上看,最严格水资源管理制度还停留在政策层面。在解决水资源危机中,法律扮演着不可替代的角色,实现最严格水资源管理确立的各项目标任务,最终还是要落实到法律制度的设置与实施上来,因此,迫切需要从法学的视角全面剖析这一制度创新体系,查找存在的问题,提出针对性的对策建议。本文定位于水资源管理法律制度创新研究,有着深刻的理论意义和迫切的现实意义。文章除引言、结语外,共分为7章。第一章为“水资源管理基础问题之探讨”。本章首先对水资源及其管理的概念、水资源的特征及概况等进行了归纳和介绍。在此基础上,梳理、探讨了可持续发展理论、现代产权理论、外部性理论、新制度经济学理论、搭便车理论等水资源管理的相关理论基础。文章提出水资源的配置和开发利用需要统筹各项社会目标,并重点考虑可靠的供应、价格合理、经济上可行、社会可接受、有利于环境保护、促进基本公共服务均等化、改进用水方式、创新体制机制、促进区域合作、有利于加快脱贫等10个要素。最后,对水资源管理的基本原则和主要手段进行了阐述。本章主要作为全面论述最严格水资源管理制度的铺垫。第二章为“最严格水资源管理制度的形成与发展”。本章正式引入最严格水资源管理制度,首先对我国水资源管理体制的历史沿革进行了回顾,随后从制度变革的需要、水利战略地位的演进、土地管理及节能减排管理制度的实践等方面,分析了最严格水资源管理制度出台的背景,在此基础上归纳出最严格水资源管理制度的提出、确定和发展等三阶段历程,进而对最严格水资源管理制度的体系、特点和意义进行了全面论述。本章是问题的正式提出,为后文的分析及解决问题奠定了基础。从第三章到第五章为“制度的法律问题研究”,文章逐项分析、研究了最严格水资源管理制度中与“三条红线”相对应的用水总量控制、用水效率控制、水功能区限制纳污等三项制度,高度概括出其制度的特点依次是“强化”、“统筹"和“整合”。三章的写作体例基本一致,首先是对各项制度的基本情况,包括基本概念、管理体制、工作基础、国外及地方实践经验及启示等内容,进行归纳、论述；随后,结合对现行法律规定的分析,对各项制度的主要内容及创新性进行全面剖析；最后,对各项制度存在的主要问题进行了总结和反思。第六章为“水资源管理责任和考核制度法律问题研究”。本章提出,水资源管理责任和考核制度属于保障型制度,对前三项制度的实施起到约束和督促的作用,并将该项制度的特点定位于“突破”。文章总结、分析了现行干部考核体系和法律法规的相关规定,提炼、借鉴了其他行业以及地方的实践经验,在此基础上全面剖析了水资源管理责任和考核制度的主要内容,并查找出制度的不足之处。第七章为“完善最严格水资源管理制度的政策建议”。最严格水资源管理制度的提出,既是基于我国国情和水情的重大理论创新,也是符合水资源自然规律和治理原则的系统制度设置,但是仍存在入私法规范设计不足、司法保护制度缺失等问题。本章针对化解我国水资源危机,进一步改革、完善最严格水资源管理制度体系,在前文分项论证的基础上,提出了列为基本国策,完善法律体系,创新管理体制,强化法律实施,参与宏观调控,发挥市场作用,推动公众参与以及其他措施手段等8个方面、较为系统的对策措施建议。更多还原

【Abstract】 Water is the origin of life, the essence of production and the basis of ecology. Great population, scarcity of water resources and uneven spatial and temporal distribution of water resources remain the basic national and water resources situation. China is faced with sever water resources situation with ever increasing water resources scarcity, water pollution and water ecology deterioration, which has become a bottleneck restricting sustainable socio-economic development. To this end, the CPC Central Committee and the State Council clearly required the implementation of the most stringent water resources management system. Generally speaking, this system is still on the policy level. In order to achieve the objectives laid out in this system, we should ultimately resort to the building and implementation of legal system, because laws play an irreplaceable role in finding way out of the water crisis. Therefore, it is imperative that we comprehensively analyze the institutional innovation of this system form the legal perspective, find out hidden pitfalls, and propose targeted countermeasures and suggestions. This dissertation focuses on innovative study of the legal system of water resources management, thus having profound theoretical and practical significance.Apart from Introduction and Conclusion, there are altogether seven chapters.Chapter one is "Basic Problems of Water Resource Management". This chapter first summarizes and introduces the concepts of water resources, water resources management, and features and current situations of water resources management. On this basis, this chapter then discusses theoretical basis of water management, including the theory of sustainable development, modern property rights theory, the theory of externalities, new institutional economics theory as well as the free-rider theory. This dissertation proposes that in the field of water resources development and utilization, various social goals should be taken into account and coordinated and we should pay special attention to ten elements, namely reliable supply, reasonable price, economic viability, social acceptability, environmental friendliness, promoting equalization of basic public services, water use improvement, innovation of institutional mechanisms, promoting regional cooperation, and poverty elimination.Chapter two is titled "Formation and Development of the Most Stringent Water Resources Management System". This chapter introduces the most stringent water management system. It first reviews the evolution history of this system, and then analyzes background of its issuance in terms of the need of institutional reform, the strategic position of water conservancy, land management as well as the practical experience of energy saving and emission reduction. It is followed by a summarization of the introduction, issuance and development, as well as a comprehensive discussion of the most stringent water management system itself, its characteristics and significance. This chapter presents problems of the whole dissertation, and lays the foundation for analysis and problem-solving of the upcoming chapters.Chapter three to Chapter five focus on study of legal issues of the most stringent water resources management system. The dissertation analyzes and studies "Three Red Lines", referring to total water utilization control, water use efficiency control and pollution bearing limit of water functioning zones respectively from which the features of this system are condensed into "enhancement","coordination" and "integration". The writing style of these three chapters is basically consistent, which are as follows:first, basic content of various systems, including their concepts, management systems, basis for work, foreign and local practical experience and enlightenment, are summarized and discussed; second, a comprehensive analysis of the main content and innovation of various systems is carried out in combination of the analysis of existing legal provisions, followed by a summary and reflection of the main problems of various systems.Chapter six serves as a study of legal issues of water resources management responsibilities and assessment system. Presented in this chapter is that water resources management responsibilities and assessment system is a guarantee system and acts as constrain and supervisor of the previous three systems with "breakthrough" being its characteristics. The dissertation analyzes and summarizes the current evaluation system for officials and the relevant provisions of laws and regulations, refines and draws on the practical experience of other sectors and localities, based on which a comprehensive analysis of the content of water resources management responsibilities and assessment system is presented, in order to find out its inadequacies.Chapter seven commits itself to policy recommendations for improving the most stringent water resources management system, which is a major theoretical innovation of China’s national and water resources conditions, and which is also in keeping with natural laws of water resources and system setting of its governance principles. However, there still exist problems such as inadequacies in private law designing, lack of judicial protection system, etc. With the aim of solving water resources crisis of China and further reforming and improving the most stringent water resources management system, this chapter proposes eight systemic countermeasures and suggestions based on previous analysis, which are as follows:incorporating the system as a basic national policy, improving legal system, innovating management system, strengthening law enforcement, participating into macro regulation, unleashing the power of the market, enhancing public participation, etc.更多还原