流域立法视角下生态流量保障的制度供给--以长江流域为例

生态流量保障的重难点在于流域生态流量不足问题的妥善解决。生态流量不足基于产生的原因可分为“自然型”和“人为型”。“人为型”生态流量不足的根源在于《水法》第4条规定的三生用水关系未得到妥善处理,实质上是水资源分配和管理不合理所致。具体表现为水资源保护理念镶嵌在制度表层、生态流量缺乏核心制度保障、流域规划匮乏强效监督机制、流域水资源分配信息公开不足、末端行政考核制度偏重水质管控、生态用水制度顶层设计与地方实施间落差巨大等。流域立法作为立法体系的中间环节,对上位法具有填补协调功能,对地方立法具有引领指导作用。建议在流域立法过程中,通过制度设计解构流域生态流量保障现存的制度困境,主要包括以下几个方面:一是完成流域特有保护理念到实体制度的转型。二是基于流域生态修复、水资源生态红线管控制度的开展以及有效衔接规划环境影响评价制度的需要,建立生态流量管控指标制度体系不可或缺。三是基于流域规划对三生用水的初始分配性,将生态流量供给纳入流域规划体系中,从水资源分配初始阶段保障生态流量,同时强化流域水资源规划制度的监督机制,健全规划制定的程序性规范,明确科学考察和调查评价人员的构成规则、方式及模式。四是依法加深政府信息公开程度保障公众的知情权、参与权及监督权。五是完善行政考核制度体系强化对生态流量供给的考核。

System supply of ecological flow guarantee from the perspective of river basin legislation:taking the Yangtze River Basin as an example

The key points and difficulties of ecological flow protection lies in the proper solution to the problem of insufficient ecological flow in the river basin,which can be divided into‘natural type’and‘human-made type’based on the causes.The root cause of the lack of‘human-made’ecological flow is that the relationship between the water used for life and production,and ecological environment regulated by Article 4 of the Water Law has not been properly handled;in essence,it is caused by unreasonable allocation and management of water resources,which is manifested by the facts that the concept of water resources protection is only embedded in the surface of the system,ecological flow lacks core system guarantee,there is a shortage of a powerful supervision mechanism in river basin planning,basin water resources allocation information has not been appropriately disclosed,the end administrative assessment system emphasizes just water quality control,and a huge gap has been formed between the top-level design of the ecological water system and local implementation.Basin legislation as an intermediate link in the legislative system has the function of amending and coordinating the higher-level laws and guiding the local legislation.It is recommended that in the process of basin legislation,the institutional dilemma of the ecological flow of the river basin should be deconstructed through system design and should cover the following aspects:①Completing the transformation of the unique protection concept of the river basin into a physical system;②Establishing an indispensable ecological flow control index system based on the demanding of ecological restoration in the river basin,the construction of water resources ecological red line control,and the need to effectively connect the planned environmental impact assessment system;③Incorporating the supply of ecological flows into the river basin planning system to ensure ecological flows from the initial stage of water resources allocation in view of the initial allocation of water use for living,production,and ecology in river basin planning,and simultaneously strengthening the supervision mechanism of the river basin water resources planning system,improving the planning and norms of planning,and clarifing the rules,methods and models of the scientific investigation and evaluation personnel;④Deepening the degree of government information disclosure to protect the public’s right to know,participate and supervise according to law;⑤Improving the administrative assessment system and strengthening the assessment of ecological flow supply.