我国小水电生态流量的监管问题研究
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摘要
近年来,小水电开发带来的生态环境问题频遭曝光,小水电成为社会关注的焦点。小水电的开发对优化地区的能源结构、推动农村经济发展具有重要意义,但是,因生态流量的问题使得小水电饱受诟病。本文从我国小水电生态流量的现有法律规定出发,指出我国当前小水电生态流量监管存在责任主体不明、监管依据不足、监管手段不力、缺乏公众参与的问题。针对我国小水电生态流量监管的现状从国家层面进行制度设计,制定小水电生态流量监管条例,对小水电站生态流量的监管主体与职权、监管内容、监管手段做出规定,并通过加强信息公开、宣传教育、鼓励公众参与等方式,落实小水电生态流量的工作。
In recent years, ecological and environmental problems brought about by small hydropower development have been exposed frequently, and small hydropower has become the focus of social attention. As one of the new energy sources, small hydropower plays an important role in optimizing regional energy structure and promoting rural economic development. However, small hydropower has been criticized for its ecological flow. Based on the existing legal provisions of small hydropower ecological flow in China, this paper points out that there are problems in the supervision of small hydropower ecological flow in China, such as unclear subject of responsibility, insufficient basis of supervision, inadequate means of supervision and lack of public participation. In view of the current situation of small hydropower ecological flow regulation in China, system design is carried out on the national level, regulations on small hydropower ecological flow regulation are formulated, regulations on the supervision subject, authority, supervision content and supervision means of small hydropower ecological flow are made, and the supervision of small hydropower ecological flow is implemented by strengthening information disclosure, publicity of education, and encouraging public participation.
In recent years, ecological and environmental problems brought about by small hydropower development have been exposed frequently, and small hydropower has become the focus of social attention. As one of the new energy sources, small hydropower plays an important role in optimizing regional energy structure and promoting rural economic development. However, small hydropower has been criticized for its ecological flow. Based on the existing legal provisions of small hydropower ecological flow in China, this paper points out that there are problems in the supervision of small hydropower ecological flow in China, such as unclear subject of responsibility, insufficient basis of supervision, inadequate means of supervision and lack of public participation. In view of the current situation of small hydropower ecological flow regulation in China, system design is carried out on the national level, regulations on small hydropower ecological flow regulation are formulated, regulations on the supervision subject, authority, supervision content and supervision means of small hydropower ecological flow are made, and the supervision of small hydropower ecological flow is implemented by strengthening information disclosure, publicity of education, and encouraging public participation.
引文
[1] 蔡金栋.全球多国小水电发展现状[J].水利水电快报,2018(5):6-8+10.
[2] 郁媛,韩泽萱,马丽雅.小水电现状分析及建议[J].中国水能及电气化,2017(10):15-18+14.
[3] 中华人民共和国水利部2017年农村水电年报[EB/OL].http://www.mwr.gov.cn/sj/tjgb/ncsdnb/201806/t20180611_1039621.html,[2018-11-11].
[4] 胡德胜.论我国的生态环境用水保障制度[J].河北法学,2010(11):59-67.
[5] 王晓红,张建永,廖文根,黄锦辉,邱冰.绿色水利水电工程规划建设中的生态流量保障措施研究[J].环境保护,2018(Z1):60-64.
[6] 陈慈阳.环境法总论[M]. 北京:中国政法大学出版社,2003:189.
[7] 叶俊荣.环境政策与法律[M].北京:中国政法大学出版社,2003:191.
[8] 蔡守秋.环境公平与环境民主——三论环境资源法学的基本理念[J].河海大学学报(哲学社会科学版),2009(3):17.
(1)《环境保护法》第4条:保护环境是国家的基本政策。
(2)《环境保护法》第30条:开发利用自然资源,应当合理开发,保护生物多样性,保障生态安全,依法制定有关生态保护和恢复治理方案并予以实施。
(3)《水法》第4条:开发、利用、节约、保护水资源和防治水害,应当全面规划、统筹兼顾、标本兼治、综合利用、讲求效益,发挥水资源的多种功能,协调好生活、生产经营和生态环境用水。
(4)《水法》第21条:开发、利用水资源,应当首先满足城乡居民生活用水,并兼顾农业、工业、生态环境用水以及航运等需要。在干旱和半干旱地区开发、利用水资源,应当充分考虑生态环境用水需要。
(5)《水法》第26条:建设水力发电站,应当保护生态环境,兼顾防洪、供水、灌溉、航运、竹木流放和渔业等方面的需要。
(6)《水污染防治法》第1条:为了保护和改善环境,防治水污染,保护水生态,保障饮用水安全,维护公众健康,推进生态文明建设,促进经济社会可持续发展,制定本法。
(7)《水污染防治行动计划》“着力节约保护水资源”中第(十)“科学保护水资源”:加强江河湖库水量调度管理。完善水量调度方案。采取闸坝联合调度、生态补水等措施,合理安排闸坝下泄水量和泄流时段,维持河湖基本生态用水需求,重点保障枯水期生态基流。加大水利工程建设力度,发挥好控制性水利工程在改善水质中的作用。科学确定生态流量。在黄河、淮河等流域进行试点,分期分批确定生态流量(水位),作为流域水量调度的重要参考。
(8)《取水许可和水资源费征收管理条例》第3条:县级以上人民政府水行政主管部门按照分级管理权限,负责取水许可制度的组织实施和监督管理。
[2] 郁媛,韩泽萱,马丽雅.小水电现状分析及建议[J].中国水能及电气化,2017(10):15-18+14.
[3] 中华人民共和国水利部2017年农村水电年报[EB/OL].http://www.mwr.gov.cn/sj/tjgb/ncsdnb/201806/t20180611_1039621.html,[2018-11-11].
[4] 胡德胜.论我国的生态环境用水保障制度[J].河北法学,2010(11):59-67.
[5] 王晓红,张建永,廖文根,黄锦辉,邱冰.绿色水利水电工程规划建设中的生态流量保障措施研究[J].环境保护,2018(Z1):60-64.
[6] 陈慈阳.环境法总论[M]. 北京:中国政法大学出版社,2003:189.
[7] 叶俊荣.环境政策与法律[M].北京:中国政法大学出版社,2003:191.
[8] 蔡守秋.环境公平与环境民主——三论环境资源法学的基本理念[J].河海大学学报(哲学社会科学版),2009(3):17.
(1)《环境保护法》第4条:保护环境是国家的基本政策。
(2)《环境保护法》第30条:开发利用自然资源,应当合理开发,保护生物多样性,保障生态安全,依法制定有关生态保护和恢复治理方案并予以实施。
(3)《水法》第4条:开发、利用、节约、保护水资源和防治水害,应当全面规划、统筹兼顾、标本兼治、综合利用、讲求效益,发挥水资源的多种功能,协调好生活、生产经营和生态环境用水。
(4)《水法》第21条:开发、利用水资源,应当首先满足城乡居民生活用水,并兼顾农业、工业、生态环境用水以及航运等需要。在干旱和半干旱地区开发、利用水资源,应当充分考虑生态环境用水需要。
(5)《水法》第26条:建设水力发电站,应当保护生态环境,兼顾防洪、供水、灌溉、航运、竹木流放和渔业等方面的需要。
(6)《水污染防治法》第1条:为了保护和改善环境,防治水污染,保护水生态,保障饮用水安全,维护公众健康,推进生态文明建设,促进经济社会可持续发展,制定本法。
(7)《水污染防治行动计划》“着力节约保护水资源”中第(十)“科学保护水资源”:加强江河湖库水量调度管理。完善水量调度方案。采取闸坝联合调度、生态补水等措施,合理安排闸坝下泄水量和泄流时段,维持河湖基本生态用水需求,重点保障枯水期生态基流。加大水利工程建设力度,发挥好控制性水利工程在改善水质中的作用。科学确定生态流量。在黄河、淮河等流域进行试点,分期分批确定生态流量(水位),作为流域水量调度的重要参考。
(8)《取水许可和水资源费征收管理条例》第3条:县级以上人民政府水行政主管部门按照分级管理权限,负责取水许可制度的组织实施和监督管理。