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              《長江保護法》為保護長江流域生態環境,推進長江經濟帶綠色發展提供了法律保障。2019年6月,長江保護法立法座談會指出,加快長江保護立法進程,在立法中要找準定位,突出重點。
            法律以社會為基礎,以社會關系為調整對象。立法定位與立法重點的確立,應當著眼于《長江保護法》需要處理的社會關系。筆者認為,在《長江保護法》立法過程中,應當處理好以下幾種關系。
            一是處理好經濟發展與生態保護的關系。長江經濟帶建設中的“共抓大保護,不搞大開發”要求科學發展、綠色發展。可持續發展理念強調,在經濟增長的同時,必須注意自然資源的合理開發與生態環境保護相協調,使發展建立在資源的可持續利用和良好的生態環境基礎上。
            一方面,長江經濟帶覆蓋上海、江蘇、浙江等11省(市),面積占全國的21%,人口數量和經濟總量均超過全國的40%,在我國經濟發展版圖中占據重要位置。另一方面,長江流域約占全國水資源總量的35.0%,河湖、水庫、濕地面積約占全國的20.0%,珍稀瀕危植物占全國總數的39.7%,淡水魚類占全國總數的33.0%,流域內森林覆蓋率達41.3%,在我國生態保護領域居于重要地位。
            因此,《長江保護法》應正確處理好經濟發展與生態保護的關系,建議將新發展理念、可持續發展理念貫徹立法始終,在立法目的、法律原則、具體規范等中都有所體現。
            二是處理好區域差異與協同治理的關系。長江經濟帶覆蓋11省(市),區域經濟社會發展不平衡狀況顯著,對經濟發展和生態環境保護存在不同的需求。因此,必須以協同思維整體謀劃長江經濟帶的發展與保護。當前,長江經濟帶生態環境協同治理較弱,難以有效適應全流域完整性管理的要求,生態環境協同保護體制機制亟待建立健全。因此,長江經濟帶生態環境協同治理體制機制建設勢在必行,強化長江經濟帶區域協同治理應成為《長江保護法》的立法重點之一。
            協同治理過程要求建立利益協調機制,以維護公共利益和協同關系。自長江經濟帶發展戰略提出以來,為推動沿江省(市)就相關問題進行協調磋商,已探索建立長江經濟帶省際協商合作機制。但是,在國家層面仍缺少統一的議事協調機構,建議在《長江保護法》中增設國家級的負責統籌協商合作的議事機構。
            沿長江經濟帶各省(市)的經濟發展水平差異較大,如果讓欠發達省份與發達省份共同地、無差別地承擔保護責任,將加劇區域發展不平衡。因此,有必要建立生態保護的區域補償機制,以增進互惠互利互信。國務院九部門聯合印發的《建立市場化、多元化生態保護補償機制行動計劃》提出,鼓勵生態保護地區和受益地區開展橫向生態保護補償,探索建立流域下游地區對上游地區提供優于水環境質量目標的水資源予以補償的機制。因此,省際間的生態補償制度應寫入《長江保護法》,為加強互惠互利互信提供保障。
            三是處理好國家政策與國家法律的關系。國家政策是為實現一定歷史時期的政治、經濟、文化等任務和目標而確立的行動準則、措施和方針;國家法律是由國家制定或認可,并由國家強制力保證實施的、具有普遍效力的行為規范。政策和立法在功能上可互補,內容上可互通,應當發揮政策和法律的各自優勢,促進政策和法律互聯互動。
            圍繞長江保護、開發和利用,國家出臺的政策主要有《長江經濟帶發展規劃綱要》《關于依托黃金水道推動長江經濟帶發展的指導意見》 等。哪些政策可以轉化為法律?如何將政策要求轉化為法律規范?較合理的做法是將經過實踐檢驗、比較成功的政策轉化為法律規范,促使實踐性、試驗性較強的政策彌補理性建構主義立法的不足。在長江保護實踐中,如負面清單管理制度、長江生態保護補償制度、環境污染聯防聯控制度、黨政領導干部生態環境損害責任追究問責制度、生態保護紅線控制等,都取得較好實踐效果,應將其進一步系統化、規范化。通過將實踐效果好的長江保護政策予以立法確認、吸納與總結,促使政策更具穩定性、普遍性和權威性。
            四是處理好問題導向與長遠謀劃的關系。立法應堅持問題導向,直面現實問題、解決現實問題。同時,從方法論上看,立法也應當兼具現實性與前瞻性,將問題導向與長遠謀劃相統一。凡事預則立,不預則廢,《長江保護法》應立足長遠,根據國際上流域治理、大河治理的法律經驗,在立法時提前予以體現,通過前瞻性立法進一步夯實長江保護的法制基石。例如,在萊茵河治理中,為維護萊茵河良好水質和生態環境,各類理事會、行業協會等非政府組織廣泛參與重要決策;在密西西比河治理中,通過加強政府和社會的合作,取得良好治理效果。由此,流域的開發、利用與治理形成以共同參與為基礎的良性機制,激發了社會活力,提高了治理效能。近年來,公眾參與生態環境保護的熱情日益高漲,在生態環保實踐中發揮了重要作用。《長江保護法》應將公眾參與制度寫入立法,鼓勵環保志愿者服務,引導社會公益基金對長江保護的支持。 
                 □張濤 席鷺軍

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