【摘要】：一 在海洋環(huán)境保護(hù)的實(shí)踐中,海洋環(huán)境監(jiān)測發(fā)揮了重要作用,作為海洋環(huán)境保護(hù)的重要工具,海洋環(huán)境監(jiān)測不僅為制定海洋環(huán)境保護(hù)政策、措施提供了重要依據(jù),也為滿足廣大公眾環(huán)境知情權(quán)提供了依據(jù)。但是,要想進(jìn)一步加強(qiáng)海洋環(huán)境監(jiān)測,更好地發(fā)揮海洋環(huán)境監(jiān)測在海洋環(huán)境保護(hù)中的作用,僅僅靠現(xiàn)行環(huán)境法律中支離破碎的幾條規(guī)范是不夠的。我國必須盡快建立專門的環(huán)境監(jiān)測立法。建立環(huán)境監(jiān)測法是加強(qiáng)海洋環(huán)境監(jiān)測工作管理和規(guī)范監(jiān)測行為的需要,是在海洋環(huán)境保護(hù)中實(shí)現(xiàn)數(shù)據(jù)共享和避免重復(fù)建設(shè)的需要。建立一部完整的海洋環(huán)境監(jiān)測法,有助于加強(qiáng)海洋環(huán)境監(jiān)測信息發(fā)布管理,提升政府公信力,也有利于確保監(jiān)測數(shù)據(jù)合理使用的需要。 二 海洋環(huán)境監(jiān)測法顯然不是在法律真空中另起爐灶的一個(gè)法律體系,而是彌補(bǔ)現(xiàn)有法律體系不足的一項(xiàng)補(bǔ)充立法。它應(yīng)當(dāng)是一國法律體系的有機(jī)組成部分。從我國法律體系的現(xiàn)狀看,海洋環(huán)境監(jiān)測法有其立法基礎(chǔ)。大致說來,環(huán)境法是海洋環(huán)境監(jiān)測立法的根本性基礎(chǔ),海洋環(huán)境法是海洋環(huán)境監(jiān)測立法的直接基礎(chǔ),而海洋管理制度性需求是海洋環(huán)境監(jiān)測法的現(xiàn)實(shí)基礎(chǔ)。 三 “海洋環(huán)境監(jiān)測法”中最核心的詞匯就是“監(jiān)測”�！氨O(jiān)測”由“監(jiān)”與“測”兩部分組成,“監(jiān)”是指監(jiān)督,體現(xiàn)管理的內(nèi)涵,“測”是指測量測試,體現(xiàn)了技術(shù)層面的含義。明確監(jiān)和測的區(qū)別,按照兩者分離的原則規(guī)劃監(jiān)測的立法是使監(jiān)測法充分發(fā)揮海洋管理手段作用的關(guān)鍵。當(dāng)兩者由兩個(gè)相互獨(dú)立的主體來進(jìn)行行為時(shí),監(jiān)測出的數(shù)據(jù)的客觀真實(shí)性才能得到保障,才能更加有效地使用監(jiān)測數(shù)據(jù)為海洋管理服務(wù)。實(shí)踐中將監(jiān)督與測量混為一談的做法表現(xiàn)為管理者與測量者不分,而其結(jié)果常常是監(jiān)測數(shù)據(jù)按長官意志產(chǎn)生,監(jiān)測活動(dòng)隨管理者態(tài)度的變化而變化。 海洋環(huán)境監(jiān)測制度是海洋環(huán)境監(jiān)測法的核心。我國現(xiàn)行法律中的海洋環(huán)境監(jiān)測制度包括海洋環(huán)境監(jiān)測站的管理制度、環(huán)境監(jiān)測網(wǎng)的管理制度、環(huán)境監(jiān)測報(bào)告制度、環(huán)境監(jiān)測儀器設(shè)備管理制度、監(jiān)測數(shù)據(jù)資料的管理制度、環(huán)境監(jiān)測質(zhì)量保證管理制度、監(jiān)測人員合格證制度等。自1982年我國頒布《海洋環(huán)境保護(hù)法》以來,我國逐步形成了國家與地方相結(jié)合的海洋環(huán)境監(jiān)測體系。這個(gè)體系主要由監(jiān)測管理機(jī)構(gòu)和監(jiān)測業(yè)務(wù)機(jī)構(gòu)組成。 海洋環(huán)境監(jiān)測管理機(jī)構(gòu)是海洋環(huán)境監(jiān)測管理的組織保證。國家海洋行政主管部門負(fù)責(zé)海洋環(huán)境的監(jiān)督管理,組織海洋環(huán)境的調(diào)查、監(jiān)測、監(jiān)視、評價(jià)和科學(xué)研究,負(fù)責(zé)全國防治海洋工程建設(shè)項(xiàng)目和海洋傾倒廢棄物對海洋污染損害的環(huán)境保護(hù)工作。國家海洋局是國務(wù)院管理海洋事務(wù)的職能部門,全面負(fù)責(zé)全國的海洋環(huán)境的監(jiān)督管理,組織海洋環(huán)境的調(diào)查、監(jiān)測、監(jiān)視、評價(jià)和科學(xué)研究。國家海洋局下設(shè)的北海分局、東海分局和南海分局分別負(fù)責(zé)北海區(qū)(渤海、黃海北部)、東海區(qū)和南海區(qū)的海洋環(huán)境監(jiān)測管理工作。沿海11個(gè)省(自治區(qū)、直轄市)人民政府設(shè)立了海洋行政管理機(jī)構(gòu),負(fù)責(zé)組織本省(自治區(qū)、直轄市)的海洋環(huán)境調(diào)查、監(jiān)測、監(jiān)視和評價(jià),監(jiān)測監(jiān)視海洋自然保護(hù)區(qū)和特別保護(hù)區(qū),組織海洋環(huán)境觀測、監(jiān)測、災(zāi)害預(yù)報(bào)警報(bào)。沿海各市(地區(qū))人民政府設(shè)立的海洋環(huán)境監(jiān)測管理機(jī)構(gòu),按照國家和省的要求,結(jié)合本地區(qū)的實(shí)際,組織本地區(qū)的的海洋環(huán)境調(diào)查、監(jiān)測、監(jiān)視和評價(jià),組織海洋環(huán)境觀測、監(jiān)測、災(zāi)害預(yù)報(bào)警報(bào)。沿海大部分縣(區(qū)、市)也設(shè)立了海洋環(huán)境監(jiān)測管理機(jī)構(gòu),按照國家和上級的要求,組織實(shí)施本縣(區(qū)、市)的海洋環(huán)境調(diào)查、監(jiān)測、監(jiān)視和評價(jià)。 海洋環(huán)境監(jiān)測業(yè)務(wù)機(jī)構(gòu)是海洋環(huán)境監(jiān)測的操作機(jī)構(gòu)。我國的海洋環(huán)境監(jiān)測業(yè)務(wù)機(jī)構(gòu)體系由國家海洋環(huán)境監(jiān)測中心、海區(qū)環(huán)境監(jiān)測中心、沿海省(自治區(qū)、直轄市)海洋環(huán)境監(jiān)測總站(中心)、沿海市(地)海洋環(huán)境監(jiān)測中心(站)、國家海洋局所屬海洋環(huán)境監(jiān)測中心站和海洋環(huán)境監(jiān)測站等監(jiān)測機(jī)構(gòu)組成。 四 由于沒有建立專門的《海洋環(huán)境監(jiān)測法》,我國現(xiàn)有海洋環(huán)境監(jiān)測制度存在諸多問題,主要包括： (1)海洋環(huán)境監(jiān)測缺乏統(tǒng)籌規(guī)劃。這主要表現(xiàn)在：各個(gè)環(huán)境監(jiān)測專項(xiàng)之間缺少銜接,重復(fù)監(jiān)測；基礎(chǔ)性綜合性監(jiān)測少,重要資料不能進(jìn)行長期積累,關(guān)鍵數(shù)據(jù)得不到及時(shí)更新；缺少頂層設(shè)計(jì),監(jiān)測工作長期處于應(yīng)急狀態(tài)。 (2)海洋環(huán)境監(jiān)測活動(dòng)缺乏監(jiān)管。這主要表現(xiàn)在：多頭管理,資源浪費(fèi)嚴(yán)重；監(jiān)測設(shè)施隨意布放,重要監(jiān)測數(shù)據(jù)存在失密隱患；部分監(jiān)測單位監(jiān)測能力和人員素質(zhì)不能滿足監(jiān)測工作的專業(yè)化要求；監(jiān)測過程缺少質(zhì)量監(jiān)督,監(jiān)測數(shù)據(jù)可靠性差。 (3)海洋環(huán)境監(jiān)測資料共享不暢。這主要表現(xiàn)在：監(jiān)測資料統(tǒng)一匯交管理制度不健全,數(shù)據(jù)資源分散；在監(jiān)測資料管理上沒有形成協(xié)調(diào)機(jī)制,信息共享不暢；資料管理和服務(wù)水平低,社會(huì)公益服務(wù)功能不強(qiáng)。 (4)監(jiān)測設(shè)備、技術(shù)自主創(chuàng)新能力較低,支撐能力不夠。這主要表現(xiàn)在：國產(chǎn)化程度低,依賴進(jìn)口,關(guān)鍵儀器設(shè)備進(jìn)口受限制；對監(jiān)測設(shè)備技術(shù)創(chuàng)新投入不足；海洋科技條件和基礎(chǔ)設(shè)施平臺建設(shè)落后,創(chuàng)新基礎(chǔ)薄弱。 (5)監(jiān)測標(biāo)準(zhǔn)化程度有待提高。這主要表現(xiàn)在：監(jiān)測標(biāo)準(zhǔn)制修訂技術(shù)機(jī)構(gòu)和體系尚未建立,監(jiān)測標(biāo)準(zhǔn)數(shù)量偏少,更新速度慢；監(jiān)測標(biāo)準(zhǔn)的數(shù)量和質(zhì)量亟待提高；監(jiān)測標(biāo)準(zhǔn)的執(zhí)行力度不夠,標(biāo)準(zhǔn)化公益服務(wù)水平較低。 (6)監(jiān)測保障水平不高。這主要表現(xiàn)在：監(jiān)測工作缺乏穩(wěn)定的資金投入,尚未列入國家財(cái)政固定科目；監(jiān)測隊(duì)伍規(guī)模小,特別是缺乏專業(yè)化的環(huán)境監(jiān)測隊(duì)伍；監(jiān)測設(shè)備數(shù)量少,更新慢,功能單一等。 要克服我國現(xiàn)有海洋環(huán)境監(jiān)測制度存在的問題,改善海洋監(jiān)測,當(dāng)務(wù)之急就是建立專門的《海洋環(huán)境監(jiān)測法》,在立法中做出有利于上述問題解決的安排。 五 我國的海洋環(huán)境監(jiān)測法應(yīng)貫徹公眾參與原則、政府主導(dǎo)原則、開放性原則、科學(xué)性原則、預(yù)防優(yōu)先原則和協(xié)同合作原則。在具體監(jiān)測制度方面,應(yīng)當(dāng)充分考慮：(1)加強(qiáng)海洋環(huán)境監(jiān)測工作的總體規(guī)劃與統(tǒng)籌；(2)建立海洋環(huán)境監(jiān)測共享體系；(3)強(qiáng)化海洋環(huán)境監(jiān)測監(jiān)管力度；(4)建立海洋環(huán)境監(jiān)測信息共享體系；(5)完善海洋環(huán)境監(jiān)測標(biāo)準(zhǔn)化體系；(6)推動(dòng)海洋環(huán)境監(jiān)測的科技創(chuàng)新；(7)完善海洋環(huán)境監(jiān)測保障機(jī)制。
[Abstract]:One
In the practice of marine environmental protection, marine environmental monitoring plays an important role. As an important tool for marine environmental protection, marine environmental monitoring provides not only an important basis for the formulation of marine environmental protection policies and measures, but also a basis for meeting the public's right to know the environment. However, the marine environment supervision should be further strengthened. It is not enough to give full play to the role of marine environmental monitoring in marine environmental protection. It is not enough to rely solely on the fragmented norms in current environmental laws. China must establish special environmental monitoring legislation as soon as possible. The establishment of environmental monitoring law is the need to strengthen the management of marine environmental monitoring and the regulation of the monitoring behavior. The establishment of a complete marine environment monitoring method will help to strengthen the management of marine environmental monitoring information, enhance the credibility of the government, and ensure the need for the rational use of the monitoring data.
Two
The marine environmental monitoring law is obviously not a legal system in the legal vacuum, but a supplementary legislation to make up for the shortage of the existing legal system. It should be an organic part of the legal system of a country. From the current situation of our legal system, the marine environment monitoring law has its legislative basis. The fundamental basis of the ocean environmental monitoring legislation is that the marine environmental law is the direct basis of the marine environmental monitoring legislation, and the institutional demand for marine management is the realistic basis of the marine environmental monitoring law.
Three
"Monitoring" is the most important word in the "marine environment monitoring law". "Monitoring" is composed of two parts: "prison" and "measurement". "Supervision" refers to supervision and embodies the connotation of management. "Measurement" refers to measurement testing, embodying the meaning of the technical level. The difference between monitoring and measurement is clearly defined and the legislation of monitoring monitoring according to the principle of separation between the two is made. It is the key to make the monitoring method fully play the role of the marine management means. When the two are carried out by two independent subjects, the objective authenticity of the monitored data can be guaranteed, and the monitoring data can be used more effectively as the marine management service. In practice, the practice of mixing supervision and measurement is shown as the manager. Independent of the surveyor, the result is often that monitoring data are generated according to the will of the supervisor, and monitoring activities vary with the attitude of the manager.
The marine environment monitoring system is the core of the marine environment monitoring law. The marine environment monitoring system in the current law of China includes the management system of the marine environmental monitoring station, the management system of the environmental monitoring network, the environmental monitoring report system, the management system of the environmental monitoring instrument and equipment, the management system of the monitoring data and data, the quality assurance of the environmental monitoring. Since the promulgation of the marine environmental protection law in China in 1982, China has gradually formed a national and local monitoring system for marine environment. This system is mainly composed of monitoring management institutions and monitoring agencies.
The marine environment monitoring and management organization is the organizational guarantee for the monitoring and management of the marine environment. The state marine administration department is responsible for the supervision and management of the marine environment, the organization of the marine environment investigation, monitoring, monitoring, evaluation and scientific research, and is responsible for the national prevention and control of marine engineering construction projects and the environment for marine pollution damage to the marine environment. The State Oceanic Administration is the functional department of the State Council in the management of marine affairs, fully responsible for the supervision and management of the marine environment in the country, organizing the investigation, monitoring, monitoring, evaluation and scientific research of the marine environment. The Beihai branch set up by the State Oceanic Administration, the East China Sea Branch and the South Sea Branch, respectively, are responsible for the Beihai district (Bohai, the northern the Yellow Sea), east of the Yellow Sea, respectively. The people's Government of 11 coastal provinces (autonomous regions and municipalities directly under the central government) has set up a marine administrative institution to organize marine environmental investigation, monitoring, monitoring and evaluation, monitoring and monitoring of marine natural protection zones and special protection zones, organizing marine environmental observation and monitoring the marine environment. The marine environment monitoring and management institutions set up by the people's governments of the coastal cities and regions of the coastal areas, in accordance with the requirements of the state and provinces and in accordance with the actual conditions of the region, organize the investigation, monitoring, monitoring and evaluation of the marine environment in the region, and organize the observation, monitoring and warning of the marine environment. Most of the coastal counties (districts and cities) have also been set up. In accordance with the requirements of the state and its superiors, the marine environmental monitoring and management institutions have organized and implemented the marine environmental investigation, monitoring, monitoring and evaluation in the counties (districts and cities).
The marine environment monitoring service organization is the operating mechanism of marine environmental monitoring. The system of marine environmental monitoring in China is composed of the national marine environment monitoring center, the marine environmental monitoring center, the marine environment monitoring station (Center) of the coastal provinces (autonomous regions and municipalities), the marine environment monitoring center (station) along the sea (land), and the State Oceanic Bureau. The marine environment monitoring center station and the marine environment monitoring station are composed of monitoring institutions.
Four
There are many problems in China's existing marine environmental monitoring system, mainly including:
(1) there is a lack of overall planning for marine environmental monitoring, which is mainly manifested in the lack of cohesion and repeated monitoring among the various environmental monitoring projects; the basic comprehensive monitoring is less, the important data can not be accumulated for a long time, the key data can not be updated in time, the top level design is lacking, and the monitoring work is in a state of emergency for a long time.
(2) the monitoring activities of marine environment are lack of supervision. This is mainly manifested in the management of multiple heads, the serious waste of resources, the random distribution of the monitoring facilities, the hidden danger of the important monitoring data, the monitoring capacity and the quality of the personnel that can not meet the professional requirements of the monitoring work; the monitoring process is short of quality supervision, and the monitoring data is reliable Poor sex.
(3) the sharing of marine environmental monitoring data is not smooth. This is mainly manifested in the unsound management system of monitoring data and the decentralization of data resources, the lack of coordination mechanism in the monitoring data management, the poor information sharing, the low level of information management and service, and the poor function of social service service.
(4) monitoring equipment, technology independent innovation ability is low, support ability is not enough. This is mainly manifested in: low degree of localization, import, import of key instruments and equipment, lack of investment in technological innovation of monitoring equipment, backward construction of marine science and technology conditions and infrastructure platform, and weak innovation foundation.
(5) the degree of standardization of monitoring needs to be improved. This is mainly manifested in that the revised technical institutions and systems of monitoring standard system have not been established, the number of monitoring standards is less and the speed of updating is slow; the quantity and quality of monitoring standards need to be improved urgently; the implementation of monitoring standards is not enough and the standard of the standard public service is low.
(6) the level of monitoring and support is not high. This is mainly manifested in the lack of stable funds in monitoring work, which has not been included in the national financial fixed subject; the scale of the monitoring team is small, especially the lack of professional environmental monitoring team; the number of monitoring equipment is small, the update is slow, and the function is single, etc.
In order to overcome the existing problems of the existing marine environmental monitoring system in China and improve the marine monitoring, the urgent task is to establish a special "marine environment monitoring law" and make arrangements to solve the above problems in the legislation.
Five
The law of marine environmental monitoring in China should carry out the principle of public participation, the principle of government leading, the principle of openness, the principle of science, the principle of priority and the principle of cooperation and cooperation. In the specific monitoring system, we should fully consider: (1) strengthen the overall planning and overall planning of the monitoring work of the marine environment; (2) establish a sharing system of marine environmental monitoring. (3) strengthen monitoring and supervision of marine environment; (4) establish a system for sharing marine environmental monitoring information; (5) improve the standardization system of marine environmental monitoring; (6) promote scientific and technological innovation of marine environmental monitoring; (7) improve the marine environmental monitoring and support mechanism.
【學(xué)位授予單位】：中國海洋大學(xué)
【學(xué)位級別】：博士
【學(xué)位授予年份】：2010
【分類號】：D922.68

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