中国跨区域水环境保护行政管理体制存在的问题探析及研究

中国以流域为单元实行的统一区域管理虽然已普遍被世界各国政府和学者接受，但在中国并没有形成一个具有统一职权和执行效力的跨区域水环境保护管理机构。以流域水资源管理为例，流域水资源保护机构名义上受水利部与环境保护部的双重领导，但在编制上却是水利部的派出事业单位，负责具体水污染管理事宜的环境保护部门的领导权在实际中并不容易落实。同时水利部和环保部门相应的受各级地方政府领导，其财政权和人事任免权由地方政府掌控，这种地位的不独立性容易使其行为受地方政府意志的支配。另外，在晋升激励和财政分税制的制度背景下，各流域地方政府有意愿和能力干涉环保部门的行为，使各种水环境保护事物让位和屈就于更实惠的地方经济发展。对于此种跨区域水环境保护行政管理体制现存的问题应当进行改善。

Analysis on Problems of Cross-regional Water Environment Protection Administrative Management System in China

Abstraet：China＇s administration system that takes basin as a unified regional management unit has generally been generally accepted by governments and scholars abroad, but there is still no cross - regional environmental protection institution which com- bines authority and executive effectiveness in China. Taking basin water resources management as an example, the river basin wa- ter resources is under the dual leadership of the Ministry of Water Resources and the environmental protection departments, but in actual works are managed by water resources departments and it is difficult for environmental protection department to get involved in real practice. At the same time, the water resources and environmental protection departments were also led by local govern- ments at different levels. It is difficult for them to act independently while the financial and personnel powers were controlled by local governments. Under the institutional background of promotion incentives and fiscal tax - sharing system, the local government has the ability to interfere the decisions of environmental protection departments. The environmental protection departments may succumb to the interests of local economic development. Key words： cross - regional water environment; administrative management; environmental administration; environmental protection