本文選題：沿海灘涂 + 生態(tài)環(huán)境保護(hù)�。� 參考：《中國海洋大學(xué)》2013年博士論文

【摘要】：沿海灘涂地處海陸交界地帶，具有特殊的資源價(jià)值和生態(tài)價(jià)值。隨著沿海經(jīng)濟(jì)的發(fā)展，以及大量人口向沿海一線轉(zhuǎn)移，沿海區(qū)域面臨發(fā)展空間不足、資源匱乏等問題。為了解決上述問題，沿海區(qū)域開始大規(guī)模開發(fā)（或侵占）沿海灘涂，大量的沿海灘涂被改造成農(nóng)業(yè)耕地、城市建設(shè)用地以及漁業(yè)養(yǎng)殖場(chǎng)所。由于人們只是關(guān)注沿海灘涂的資源價(jià)值，而忽視其生態(tài)價(jià)值，從而造成了一系列社會(huì)和環(huán)境問題。目前，我國有關(guān)沿海灘涂的法律法規(guī)及其管理，更有利于沿海灘涂的資源開發(fā)，而非生態(tài)保護(hù)。因此，要實(shí)現(xiàn)沿海灘涂經(jīng)濟(jì)開發(fā)與生態(tài)保護(hù)的平衡，需要對(duì)我國目前沿海灘涂保護(hù)的法律問題進(jìn)行系統(tǒng)性、創(chuàng)新性研究。 目前我國相關(guān)法律法規(guī)尚未對(duì)沿海灘涂概念進(jìn)行明確的界定，由于沿海灘涂概念不清或混亂造成實(shí)踐中沿海灘涂管理與保護(hù)的缺位或錯(cuò)位現(xiàn)象很普遍。沿海灘涂更為科學(xué)的定義，是將其界定為具有可供沿海生物生存、棲息和繁殖的生態(tài)物質(zhì)基礎(chǔ)的潮間帶、潮上帶和潮下帶。潮上帶和潮間帶灘面寬窄不一，從幾十米至幾千米不等；潮下帶是退潮時(shí)向陸一側(cè)水深不超過6米的區(qū)域。沿海灘涂按照不同的劃分標(biāo)準(zhǔn)，，可以分為不同的種類。按照地質(zhì)構(gòu)造成分的標(biāo)準(zhǔn)分類，可以分為泥灘、砂灘、巖灘三種；按照生態(tài)的顯示度標(biāo)準(zhǔn)，可以分為裸灘和生物灘兩種。其中生物灘又可以細(xì)分為草灘、紅樹林灘和珊瑚礁灘三種；按照其形態(tài)變化的標(biāo)準(zhǔn)，可以將之劃分為穩(wěn)定型灘涂、淤漲型灘涂、侵蝕型灘涂三種。沿海灘涂具有海陸交界性、動(dòng)態(tài)變化性、生態(tài)性等特征，這些特征彰顯了沿海灘涂的獨(dú)特性。 除了概念上的模糊之外，我國相關(guān)法律對(duì)沿海灘涂的性質(zhì)也沒有做出非常明確的定位。學(xué)界對(duì)其性質(zhì)定位還遵循“非土地即海域”的兩分法思路，從而使得沿海灘涂的潮上帶、潮間帶和潮下帶分屬不同的法律調(diào)整，造成了沿海灘涂保護(hù)的割裂。要實(shí)現(xiàn)沿海灘涂的有效保護(hù)，需要打破這種思維窠臼，遵循三分法的思路，即將之劃分為“土地、海域、海岸帶”三種性質(zhì)，將沿海灘涂納入海岸帶范疇，實(shí)現(xiàn)沿海灘涂潮上帶、潮間帶和潮下帶性質(zhì)定位上的一致，從而將沿海灘涂作為一個(gè)整體予以保護(hù)。 沿海灘涂在調(diào)節(jié)氣候、保有生物多樣性、凈化海岸環(huán)境等方面發(fā)揮著重要的作用。但是我國的沿海灘涂退化嚴(yán)重：沿海灘涂的面積不斷遭受自然侵蝕和人工侵占；生物多樣性不斷降低；灘涂污染也日益嚴(yán)重。沿海灘涂的嚴(yán)重退化使得其生態(tài)功能不斷受到損害。我國的沿海灘涂之所以存在退化嚴(yán)重的狀況，在于我國沿海灘涂的管理體制、法律法規(guī)及調(diào)整手段都存在些許問題。沿海灘涂的管理體制是一種分散管理體制，水利部門、海洋部門、林業(yè)部門、農(nóng)（漁）業(yè)部門、國土部門及環(huán)保部門等都有管理和規(guī)制權(quán)限；沿海灘涂管理體制還是一種“地方為主、中央為輔”的管理體制，是一種環(huán)境保護(hù)從屬于經(jīng)濟(jì)開發(fā)的管理體制。目前我國尚沒有專門出臺(tái)一部有關(guān)沿海灘涂的法律和行政法規(guī)，有關(guān)沿海灘涂的地方法規(guī)和規(guī)章主要基于灘涂的經(jīng)濟(jì)開發(fā)而非生態(tài)保護(hù)。地方法規(guī)和規(guī)章設(shè)定的沿海灘涂調(diào)整手段單一，主要包括“灘涂開發(fā)的環(huán)境許可、灘涂開發(fā)的環(huán)境規(guī)劃、灘涂違規(guī)開發(fā)與環(huán)境破壞的行政處罰”三種調(diào)整手段。三種調(diào)整手段在實(shí)際操作過程中注重沿海灘涂的入口管控和末端管控，而非過程管控。 沿海灘涂保護(hù)之所以在管理體制、法律法規(guī)及調(diào)整手段上存在上述問題，究其根源，可以概括為三個(gè)方面：注重資源而非生態(tài)的價(jià)值認(rèn)知，基于分散而非綜合的制度根源，側(cè)重端口而非過程的調(diào)整思路。換言之，沿海灘涂保護(hù)具有“資源性、分散性和端口性”的癥結(jié)。要實(shí)現(xiàn)沿海灘涂的有效保護(hù)，實(shí)現(xiàn)灘涂經(jīng)濟(jì)開發(fā)與生態(tài)保護(hù)的平衡，關(guān)鍵就是轉(zhuǎn)變沿海灘涂法律保護(hù)的思路，秉承“生態(tài)性、綜合性和過程性”的基本原則，構(gòu)建沿海灘涂的生態(tài)保護(hù)法律機(jī)制、綜合管理體制和完善的調(diào)整手段體系。其中，生態(tài)性原則是沿海灘涂保護(hù)的基礎(chǔ)性原則，綜合性原則和過程性原則是生態(tài)性原則的延伸和保障。 沿海灘涂保護(hù)的生態(tài)性，可以通過沿海灘涂的生態(tài)保護(hù)法律機(jī)制構(gòu)建得以實(shí)現(xiàn)。生態(tài)保護(hù)法律機(jī)制包括三個(gè)方面的內(nèi)容：沿海灘涂“零凈損失”法律機(jī)制、沿海灘涂功能區(qū)劃法律機(jī)制、沿海灘涂生態(tài)補(bǔ)償法律機(jī)制。三項(xiàng)法律機(jī)制形成一個(gè)緊密聯(lián)系的整體�！傲銉魮p失”法律機(jī)制確立全國灘涂保護(hù)面積以及可開發(fā)的要求，功能區(qū)劃法律機(jī)制根據(jù)灘涂種類和分布對(duì)灘涂進(jìn)行生態(tài)功能分類，生態(tài)補(bǔ)償法律機(jī)制則對(duì)灘涂開發(fā)與保護(hù)進(jìn)行利益平衡。三項(xiàng)法律機(jī)制盡管并不完全否定灘涂開發(fā)與利用，但是可以改變沿海灘涂資源為本的開發(fā)屬性，從而實(shí)現(xiàn)其生態(tài)為本的保護(hù)屬性。 沿海灘涂保護(hù)的綜合性，可以通過沿海灘涂綜合管理體制構(gòu)建得以實(shí)現(xiàn)。遵循當(dāng)前世界各國在環(huán)境保護(hù)上重視協(xié)調(diào)機(jī)構(gòu)建設(shè)的思路，沿海灘涂綜合管理體制構(gòu)建的核心是建立職權(quán)明確、架構(gòu)合理的沿海灘涂綜合管理委員會(huì)。綜合管理委員會(huì)需要實(shí)現(xiàn)與海岸帶管理機(jī)構(gòu)的契合，并為水利部門、海洋部門、林業(yè)部門、農(nóng)（漁）業(yè)部門、國土部門及環(huán)保部門等灘涂管理主體提供溝通和協(xié)調(diào)的平臺(tái)，從而實(shí)現(xiàn)沿海灘涂管理主體之間、中央與地方之間關(guān)系的理順。 沿海灘涂保護(hù)的過程性，可以通過沿海灘涂調(diào)整手段體系的構(gòu)建得以實(shí)現(xiàn)。完善的沿海灘涂調(diào)整手段體系應(yīng)該包括沿海灘涂行政調(diào)整手段體系和經(jīng)濟(jì)調(diào)整手段體系。行政調(diào)整手段基于命令-控制，具體包括灘涂環(huán)境標(biāo)準(zhǔn)、灘涂環(huán)境規(guī)劃、灘涂環(huán)境影響評(píng)價(jià)、灘涂環(huán)境開發(fā)許可、灘涂環(huán)境破壞處罰等；經(jīng)濟(jì)調(diào)整手段體系則是基于激勵(lì)-引導(dǎo)，具體包括灘涂開發(fā)權(quán)交易、灘涂開發(fā)押金、灘涂開發(fā)稅/費(fèi)、灘涂保護(hù)補(bǔ)貼等。兩大類調(diào)整手段體系形成了事前預(yù)防、事中監(jiān)控、事后補(bǔ)償?shù)耐暾w系，避免沿海灘涂保護(hù)“側(cè)重事后處罰、輕于事前預(yù)防”等端口管控癥結(jié)，從而實(shí)現(xiàn)過程調(diào)整。
[Abstract]:The coastal beach is located at the border area of the sea and land, which has special resource value and ecological value. With the development of coastal economy and the transfer of a large number of people to the coastal front, the coastal areas are facing the problems of insufficient space and lack of resources. In order to solve the above problems, the coastal areas have begun to develop large scale (or encroach on) coastal beaches. The coastal beach has been transformed into agricultural land, urban construction land and fishery culture place. Because people just pay attention to the resources value of the coastal beach and ignore its ecological value, it has caused a series of social and environmental problems. At present, the legal rules and management of coastal beaches in China are more conducive to the development of coastal beach resources. Therefore, in order to balance the economic development and ecological protection of the coastal beach, it is necessary to carry out systematic and innovative research on the legal issues of the coastal beach protection in China.
At present, the relevant laws and regulations of our country have not clearly defined the concept of coastal beach. Because of the unclear concept or confusion of coastal mudflat, the absence or dislocation of coastal beach management and protection in practice is very common. The coastal beach is more scientifically defined, which is defined as a living, inhabiting and breeding life for coastal living beings. The intertidal zone, the upper tidal zone and the subtidal zone are the basis of the state material. The tidal zone and the intertidal flat surface are wide and narrow, ranging from tens to thousands of meters, and the subtidal zone is a region where the water depth of the tide is not more than 6 meters. The coastal mudflat can be divided into different species according to the standard of different division. It can be divided into three kinds of mudflat, sand beach and rock beach. According to the standard of ecological display, it can be divided into two kinds of bare beach and biological beach. Among them, the beaches can be subdivided into three kinds of beach, mangrove beach and coral reef. According to the standard of its morphological change, it can be divided into stable beach, silt - up beaches, three erosive beaches. These features have the characteristics of sea land boundary, dynamic change and ecology, which show the uniqueness of coastal tidal flat.
In addition to the vague concept, the relevant laws of our country have not made a very clear orientation to the nature of the coastal beach. The academic circles also follow the dual method of "non land or sea area", which makes the tidal zone, intertidal zone and the subtidal zone in the coastal tidal flat are divided into different legal adjustments, resulting in the protection of coastal beaches. In order to realize the effective protection of the coastal beach, it is necessary to break this kind of thinking pattern and follow the thought of the three division, which will be divided into three properties, namely, "land, sea area, coastal zone", and the coastal mudflat into the coastal zone, to achieve the consistency of the tidal zone along the beach, the intertidal zone and the subtidal zone, and will be painted along the beach. Protect a whole.
The coastal beach plays an important role in regulating the climate, preserving biodiversity and purifying the coastal environment. However, the coastal beach has been degraded seriously in China: the area of coastal beaches is constantly subjected to natural erosion and artificial invasion, the biodiversity is decreasing, and the pollution of the beach is increasingly serious. The serious degradation of the coastal tidal flat makes the coastal mudflat seriously degenerate The ecological function of the coastal beaches in China is seriously degraded. There are some problems in the management system, laws and regulations and the means of adjustment of the coastal beaches in our country. The management system of the coastal beach is a decentralized management system, the water conservancy department, the Marine Department, the forestry department, the agriculture (fishery) sector, and the land. The administrative and regulatory authority of the Department and the environmental protection department all have management and regulation. The coastal beach management system is a management system which is "local and central," is a kind of environmental protection management system which belongs to the economic development. At present, there is no special legal and administrative regulations on Coastal shoal and the coastal beach. The local regulations and regulations are mainly based on the economic development of the tidal flat rather than the ecological protection. The coastal beach adjustment means set by the local regulations and regulations are single, mainly including three adjustment means: "environmental permit for the development of tidal flat, environmental planning for tidal flat development, administrative penalties for illegal exploitation of beach and environmental damage". The three adjustment means are in fact In the process of operation, attention should be paid to the entry control and terminal control of coastal beach, rather than process control.
The reason why the coastal beach protection has the above problems in the management system, laws and regulations and the means of adjustment can be summed up in three aspects: paying attention to the value cognition of the resources rather than the ecology, based on the scattered but not comprehensive institutional roots, focusing on the port instead of the process. In other words, the coastal beach protection has "resources". In order to realize the effective protection of the coastal beach and realize the balance between the economic development of the beach and the ecological protection, the key is to change the thought of the legal protection of the coastal beach and uphold the basic principles of "ecological, comprehensive and process", and construct the ecological protection legal mechanism of the coastal beach and the comprehensive management system. The ecological principle is the basic principle of the coastal beach protection, and the comprehensive principle and the process principle are the extension and guarantee of the ecological principle.
The ecological protection of coastal beach can be realized through the ecological protection legal mechanism of coastal beach. The legal mechanism of ecological protection includes three aspects: the legal mechanism of "zero net loss" in coastal beach, the legal mechanism of coastal beach functional zoning, the legal mechanism of ecological compensation for coastal beach, and the formation of three legal mechanisms. The legal mechanism of "zero net loss" establishes the protection area of the national beach and the requirements for development. The legal mechanism of functional zoning is classified according to the types and distribution of the beaches, and the legal mechanism of ecological compensation will balance the exploitation and protection of the beach. The three legal mechanisms are not finished. Totally negating the development and utilization of tidal flat, but it can change the development attributes of coastal tidal flat resources, thus achieving its ecological conservation attribute.
The comprehensive protection of coastal beach can be realized through the comprehensive management system of coastal beach. Following the ideas of the world's environmental protection, the core of the construction of the coastal beach comprehensive management system is the establishment of a comprehensive coastal beach comprehensive management committee with a reasonable authority and a reasonable framework. The staff will need to realize the agreement with the coastal zone management institutions and provide a platform for communication and coordination for water conservancy departments, marine departments, forestry departments, agriculture (fishery) departments, land departments and environmental protection departments, so as to realize the relationship between the management bodies of coastal beaches and the relationship between the central and the local.
The process of coastal tidal flat protection can be realized through the construction of the coastal beach adjustment means system. The perfect adjustment means system of coastal beaches should include the administrative adjustment system and the economic adjustment system of coastal beaches. The administrative adjustment means are based on command control, with the standard of tidal flat environment, and the planning of the beach environment, The tidal flat environmental impact assessment, the tidal flat environment development license, the beach environment damage punishment, etc., the economic adjustment means system is based on the incentive and guidance, including the tidal flat development right transaction, the beach development deposit, the beach development tax / fee, the beach protection subsidy, etc. two major categories of adjustment hand system form pre incident prevention, event monitoring and ex post compensation The complete system should avoid the port management and control crux of coastal beach protection, which focuses on "ex post punishment, less than prior prevention", so as to achieve process adjustment.

【學(xué)位授予單位】：中國海洋大學(xué)
【學(xué)位級(jí)別】：博士
【學(xué)位授予年份】：2013
【分類號(hào)】：D922.68

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