海洋环境监测法研究

【作者】 石欣；

【导师】 徐祥民；

【作者基本信息】 中国海洋大学 ， 环境与资源保护法学， 2010， 博士

【摘要】 一在海洋环境保护的实践中,海洋环境监测发挥了重要作用,作为海洋环境保护的重要工具,海洋环境监测不仅为制定海洋环境保护政策、措施提供了重要依据,也为满足广大公众环境知情权提供了依据。但是,要想进一步加强海洋环境监测,更好地发挥海洋环境监测在海洋环境保护中的作用,仅仅靠现行环境法律中支离破碎的几条规范是不够的。我国必须尽快建立专门的环境监测立法。建立环境监测法是加强海洋环境监测工作管理和规范监测行为的需要,是在海洋环境保护中实现数据共享和避免重复建设的需要。建立一部完整的海洋环境监测法,有助于加强海洋环境监测信息发布管理,提升政府公信力,也有利于确保监测数据合理使用的需要。二海洋环境监测法显然不是在法律真空中另起炉灶的一个法律体系,而是弥补现有法律体系不足的一项补充立法。它应当是一国法律体系的有机组成部分。从我国法律体系的现状看,海洋环境监测法有其立法基础。大致说来,环境法是海洋环境监测立法的根本性基础,海洋环境法是海洋环境监测立法的直接基础,而海洋管理制度性需求是海洋环境监测法的现实基础。三“海洋环境监测法”中最核心的词汇就是“监测”。“监测”由“监”与“测”两部分组成,“监”是指监督,体现管理的内涵,“测”是指测量测试,体现了技术层面的含义。明确监和测的区别,按照两者分离的原则规划监测的立法是使监测法充分发挥海洋管理手段作用的关键。当两者由两个相互独立的主体来进行行为时,监测出的数据的客观真实性才能得到保障,才能更加有效地使用监测数据为海洋管理服务。实践中将监督与测量混为一谈的做法表现为管理者与测量者不分,而其结果常常是监测数据按长官意志产生,监测活动随管理者态度的变化而变化。海洋环境监测制度是海洋环境监测法的核心。我国现行法律中的海洋环境监测制度包括海洋环境监测站的管理制度、环境监测网的管理制度、环境监测报告制度、环境监测仪器设备管理制度、监测数据资料的管理制度、环境监测质量保证管理制度、监测人员合格证制度等。自1982年我国颁布《海洋环境保护法》以来,我国逐步形成了国家与地方相结合的海洋环境监测体系。这个体系主要由监测管理机构和监测业务机构组成。海洋环境监测管理机构是海洋环境监测管理的组织保证。国家海洋行政主管部门负责海洋环境的监督管理,组织海洋环境的调查、监测、监视、评价和科学研究,负责全国防治海洋工程建设项目和海洋倾倒废弃物对海洋污染损害的环境保护工作。国家海洋局是国务院管理海洋事务的职能部门,全面负责全国的海洋环境的监督管理,组织海洋环境的调查、监测、监视、评价和科学研究。国家海洋局下设的北海分局、东海分局和南海分局分别负责北海区(渤海、黄海北部)、东海区和南海区的海洋环境监测管理工作。沿海11个省(自治区、直辖市)人民政府设立了海洋行政管理机构,负责组织本省(自治区、直辖市)的海洋环境调查、监测、监视和评价,监测监视海洋自然保护区和特别保护区,组织海洋环境观测、监测、灾害预报警报。沿海各市(地区)人民政府设立的海洋环境监测管理机构,按照国家和省的要求,结合本地区的实际,组织本地区的的海洋环境调查、监测、监视和评价,组织海洋环境观测、监测、灾害预报警报。沿海大部分县(区、市)也设立了海洋环境监测管理机构,按照国家和上级的要求,组织实施本县(区、市)的海洋环境调查、监测、监视和评价。海洋环境监测业务机构是海洋环境监测的操作机构。我国的海洋环境监测业务机构体系由国家海洋环境监测中心、海区环境监测中心、沿海省(自治区、直辖市)海洋环境监测总站(中心)、沿海市(地)海洋环境监测中心(站)、国家海洋局所属海洋环境监测中心站和海洋环境监测站等监测机构组成。四由于没有建立专门的《海洋环境监测法》,我国现有海洋环境监测制度存在诸多问题,主要包括：(1)海洋环境监测缺乏统筹规划。这主要表现在：各个环境监测专项之间缺少衔接,重复监测；基础性综合性监测少,重要资料不能进行长期积累,关键数据得不到及时更新；缺少顶层设计,监测工作长期处于应急状态。(2)海洋环境监测活动缺乏监管。这主要表现在：多头管理,资源浪费严重；监测设施随意布放,重要监测数据存在失密隐患；部分监测单位监测能力和人员素质不能满足监测工作的专业化要求；监测过程缺少质量监督,监测数据可靠性差。(3)海洋环境监测资料共享不畅。这主要表现在：监测资料统一汇交管理制度不健全,数据资源分散；在监测资料管理上没有形成协调机制,信息共享不畅；资料管理和服务水平低,社会公益服务功能不强。(4)监测设备、技术自主创新能力较低,支撑能力不够。这主要表现在：国产化程度低,依赖进口,关键仪器设备进口受限制；对监测设备技术创新投入不足；海洋科技条件和基础设施平台建设落后,创新基础薄弱。(5)监测标准化程度有待提高。这主要表现在：监测标准制修订技术机构和体系尚未建立,监测标准数量偏少,更新速度慢；监测标准的数量和质量亟待提高；监测标准的执行力度不够,标准化公益服务水平较低。(6)监测保障水平不高。这主要表现在：监测工作缺乏稳定的资金投入,尚未列入国家财政固定科目；监测队伍规模小,特别是缺乏专业化的环境监测队伍；监测设备数量少,更新慢,功能单一等。要克服我国现有海洋环境监测制度存在的问题,改善海洋监测,当务之急就是建立专门的《海洋环境监测法》,在立法中做出有利于上述问题解决的安排。五我国的海洋环境监测法应贯彻公众参与原则、政府主导原则、开放性原则、科学性原则、预防优先原则和协同合作原则。在具体监测制度方面,应当充分考虑：(1)加强海洋环境监测工作的总体规划与统筹；(2)建立海洋环境监测共享体系；(3)强化海洋环境监测监管力度；(4)建立海洋环境监测信息共享体系；(5)完善海洋环境监测标准化体系；(6)推动海洋环境监测的科技创新；(7)完善海洋环境监测保障机制。更多还原

【Abstract】 ⅠMarine environmental monitoring plays an important role in marine environmental protection. As an important tool for marine environmental protection, marine environmental monitoring provides important bases not only for making marine environmental policy but also for satisfying public the right of knowing environmental information. However, it is not enough for marine environmental monitoring further intensifying the efforts and for environmental monitoring plays a better role in the area just depending on such few norms of our environmental law and marine protection law. Our country must establish a special legislation about environmental monitoring as soon as possible, which will not only meet the needs both for intensifying environmental monitoring management and the regularize behavior, but also meet the needs of sharing data and avoiding building redundant project. Establishing a marine environmental monitoring law, which will helps a lot to make sure the monitoring information used reasonable, is good for intensifying management of publishing the marine environmental monitoring information and for enhancing the credibility of the government.ⅡMarine environmental monitoring law is obviously not a new legislation which tries to establish a totally independent legislative system in the vacuum of our legal system, but is a supplementary legislation which will cover the shortage of our legal system. Marine environmental monitoring law should be an integral part of a country’s legal system. From this point of view, marine environmental monitoring law has legal bases in our legal system. To be more precise, environmental law is the fundamentally basis of marine environmental monitoring law; marine environmental law is the direct foundation of marine environmental monitoring law and the system demand of maritime management is the objective basis of marine environmental monitoring law.ⅢThe key word of "marine environmental monitoring law" is "monitoring".In Chinese, "monitoring" is comprised of "jian" and "ce", "jian" means supervision, which contains the meaning of management; "ce" means survey and testing, which shows something in technical level. To know it has difference between "jian" and "ce" is good for designing the principle of monitoring law, which is a key point to make full use of marine environmental monitoring law in the level of maritime management. When they individually controlled by two independent department, the objective authenticity of monitoring data will be ensured and the monitoring data will be better-used in maritime management. In practice, making supervision and survey as a same thing leads to those two rights controlled by one department, as a result, monitoring data produced by the will of the performers and monitoring behavior also changing along with the attitude of them.The regulations of marine environmental monitoring are the core of marine environmental monitoring law. China’s existing marine environment monitoring regulations including marine environmental monitoring station management regulations, environmental monitoring network management regulations, environmental monitoring, reporting and environmental monitoring equipment management regulations, monitoring data management regulation, environmental monitoring, quality assurance management regulation, monitoring personnel certificate regulation. In 1982, China promulgated the Marine Environmental Protection Law. Since China has gradually formed a combination of state and local marine environment monitoring system. This system is mainly consisted of administration and operational agencies.Marine environmental monitoring management agencies are the organization guarantee. National oceanic and administrative departments are responsible for supervision and management of maritime environment, whose major work is to organize the marine environment survey, marine environment monitoring, marine environment assessment and scientific research and to be responsible for prevention of pollution by national marine projects and environmental protection of the damage of poured pollutants to the marine environment. State Oceanic Administration is a functional department under the leadership of the State Council which management maritime affairs such as supervision and management the marine environment and organization marine environmental survey, monitoring, surveillance, evaluation and research. State Oceanic Administration consists of the North Sea Branch of State Oceanic Administration, the East China Sea Branch, and South China Sea Branch, each of the three has specialized in the different areas’marine environmental monitoring management:the North Sea area (BoHai Sea, Yellow Sea north), the East China Sea and South China Sea area. Eleven coastal provinces (autonomous regions and municipalities directly under central government) set up maritime administrative institutions, responsible for organizing marine environment, investigation, monitoring, surveillance and evaluation of their own provinces (autonomous regions and municipalities),at the same time, they also organizes monitoring or special monitoring in marine protected areas, nature reserves, marine organizations, environmental observation and environmental monitoring, environmental disaster forecast warning. Combined with the local situation, marine environmental monitoring and management agencies which established by coastal cities’ (or regions’) governments organize the region’s marine environment investigation, monitoring, surveillance and evaluation and marine environmental observation, marine environmental monitoring, marine environmental disaster prediction warning in accordance with national and provincial requirements. Marine environmental monitoring and management agencies also have set up in coastal counties (districts, municipalities). In accordance with the requirements of nation and department of higher levels, they organize the marine environment, investigation, monitoring, surveillance and evaluation of their own areas.Marine environmental monitoring executing agencies are operating agencies of marine environmental monitoring. Our marine environment monitoring system is consisted of the National Marine Environmental Monitoring Center, Sea Environmental Monitoring Center, The marine Environmental Monitoring Centers in the coastal provinces (autonomous regions and municipalities), the Marine Environment Monitoring Centers (stations) in coastal cities, the National SOA-owned marine environmental monitoring Center and the marine environmental monitoring stations and other monitoring agencies.IVBecause of the absence of Marine Environment Monitoring Law, there are lots of problems exist in China’s existing marine environmental monitoring system, which major include:(1)There is no overall plan for marine environmental monitoring. This is reflected in three aspects:Lack of communication between the various environmental monitoring part leads to repeated monitoring; less basic comprehensive monitoring leads to no accumulated important information and late updated critical data; lack of top-level design leads to monitoring events are in an emergency condition over a long period of time.(2) There is no supervising towards marine environmental monitoring activities. This is reflected in several aspects:multi-management, a huge waste in resources; monitoring facilities set up randomly, a hidden danger to important monitoring data safety; monitoring personnel quality does not all meet professional requirements; the lack of quality supervision in monitoring process directly leads to poor reliability of monitoring data.(3) Poor marine environmental monitoring data sharing badly exists in practice. This is mainly reflected in these aspects:institutional deficiencies of unified management system of monitoring material and distributed data resources; there is still no coordination mechanism in monitoring material management so the information sharing, information management and social welfare services are still not well.(4) There are still some problems about monitoring equipment, technical capacity of independent innovation and support capacity. This was reflected in following aspects:low level of localization; dependence on imports; importing of key equipments is restricted; few support in innovation investment of technological monitoring equipments; the weakened conditions of marine science and the undeveloped infrastructure of basic technology platform.(5)The standard degree of monitoring is still need to be improved. This was reflected in these parts:both the quantity and the quality of monitoring standards need to be improved; the standard executive strength is insufficient; the standardized public services are still in a low level.(6)The level of monitoring security needs further enhance. This is reflected in:because of the environmental monitoring has not listed in the national investment program yet, monitoring are facing the difficulty of lacking of stable funds support; monitoring groups is on a small scales and there are few environmental monitoring professional; the equipments the slow renewal of the monitoring equipment, fewer demonstration and single function.In order to overcome the existing problems in our marine environment monitoring system and to improve our marine monitoring, the top priority is to establish a special Marine Environmental Monitoring Law, made problems-solving arrangements in legislation.VThe marine environmental monitoring law should involved those principles:the principle of public participation, government-led principle, the principle of openness, scientific principles, the principle of taking prevention foremost and the principle of cooperation. To be concrete, the monitoring system should fully consider the following things:(1) To strengthen the overall monitoring of the marine environment, planning and co-ordination; (2) Establishment of shared marine environmental monitoring system; (3) Strengthening the supervision and monitoring of the marine environment; (4)Establishment of the marine environment monitoring information-sharing system; (5) Improving the standardization of the marine environmental monitoring system; (6) To promote the innovation and technology of the marine environmental monitoring; (7) Improving the marine environmental monitoring protection system.更多还原