基层水行政执法能力提升研究

　　摘 要

　　2011 年中央一号文件《中共中央国务院关于加快水利改革发展的决定》提出：水不仅仅是生命之源，更事关农业发展，经济发展与社会进步。从古至今，水利兴则农业兴，水利兴则社会兴，水利事业的兴衰事关我国发展大局，而依法行政，是保障水利事业健康发展的前提，不仅能够维护良好的水事管理秩序，还能满足当前水利形势发展的要求 .但是，基层水政执法情况却不容乐观，严重制约了基层水利改革的进程，因此研究基层水政执法问题有着重要的理论意义和现实意义。

　　自 1988 年 1月 21日以来，我国颁布了第一部《水法》，形成了从中央到地方的水资源统一管理，并且相继设立行政许可等多项水资源管理制度，基本建立了依法取水、依法用水的体系。但是以县乡基层水政主管部门仍然面临着巨大的困难与挑战，基层水政执法的地位仍然比较低，地方政府因经济利益等原因的驱使对水政执法干预严重，水行政执法环境仍然恶劣，公民对水资源的利用和保护意识淡薄，缺少上级水行政主管部门的大力支持，导致基层水政执法工作安于现状，难以发展，基层水行政执法的能力较低，不能完全适应新形势下的执法能力要求，执法监督体制机制尚不健全，这一系列的问题都在影响着我国水政执法工作的顺利开展。

　　究其原因，我国及地方政府长久以来对基层水政执法工作的不够重视，导致基层水政执法工作不被认可；涉水的法律法规不够完善，使水政执法工作仍然会出现“无法可依，有法难依”的现象；基层执法主体能力较弱，执法人员缺少专业素质和执法能力，不能灵活应对遇到的困难，导致基层执法主体缺少威信；执法手段软弱，对违法者缺少震慑力；公民对水法律法规缺少认识，法律的约束起不到显着效果，导致了水事违法行为的发生。

　　本文从不断完善涉水法律法规建设、加大水政执法处罚力度、优化基层水利机构设置、健全基层执法网络、完善执法信息化建设，构建水事案件应急响应预案、加强对基层水政执法的监督力度等方面入手，积极探索加强基层水政执法对策，以实现水利事业的全面发展，为我国经济社会的发展提供水利支撑。

　　关键词：基层 水政执法 政府

　　Abstract

　　In 2011 the central document No.1 “CPC Central Committee and the State Council onaccelerating the reform and development of water conservancy decision” proposed that water isthe source of life, the foundation of production and ecology. Water conservancy, eliminatingdisasters, human survival, economic development, social progress, has always been a countryevent. Therefore, the rise and fall of water conservancy is related to China's overall development,and administration according to law, is the premise to guarantee the healthy development ofwater resources, not only can maintain good water management order, but also can meet therequirements of the development of water resources situation. However, basic wateradministration law enforcement is not optimistic, seriously restricted the water conservancyreform the basic process, so the research problems of basic water administration lawenforcement has important theoretical and practical significance.

　　Since January 21, 1988, China's first “water law” enacted, clear the unified management ofthe competent administrative department of the State Council shall be responsible for thenational water resources water. Unified management departments of people's governments atvarious levels in charge of water administration of water resources in this area, and establishedthe basic system of water management of water permit system and many other nationally,initially established from the central to local water law system and water administrative lawenforcement team, so that the water resources of our country to go on the orbit of legaladministration. But to the competent departments of county and township grass-roots waterconservancy administration still faces huge difficulties and challenges, the grass-roots wateradministration law enforcement status is still relatively low, the local government for theeconomic interests and other reasons for water administration law enforcement intervention isserious, the phenomenon of water administrative law enforcement is still bad, the citizens of thewater resources utilization and protection consciousness is weak, the lack of strong support ofsuperior water administration the Department in charge of the work of grass-roots wateradministration law enforcement, resulting in unable to adapt to the new situation of waterconservancy development and capacity of water administrative law enforcement at the grassrootslevel is low, can not fully meet the requirements of the new situation of the ability of lawenforcement, law enforcement supervision system and mechanism is not perfect, this series ofproblems are affecting the water administration law enforcement work in China carried outsmoothly.

　　Investigate its reason, our country and local government for a long time to work at thegrass-roots level water law enforcement not enough attention, resulting in the work of grass-roots water administration law enforcement is not recognized; laws and regulations is not perfectenough to make water wading, law enforcement still appear “may not, have no law to follow”

　　phenomenon; basic subject of law enforcement ability is weak, the lack of professional lawenforcement personnel the quality and the ability of law enforcement, can flexibly cope with thedifficulties encountered, leading to the image and authority of the departments of wateradministration of the base damage; law enforcement means is too weak, it is difficult to producea deterrent to illegal personnel, law enforcement behavior is not effectively protected, the lawenforcement authority cannot be established; citizens lack of understanding of water laws andregulations of law constraints do not rise to significant effect, the causes of waterconservancyillegalactivities.

　　In this paper, by reference to the literature data, and draw lessons from the advancedexperience at home and abroad, the use of water administration theory, from the perspective ofinstitution construction, mechanism construction, ability construction, the construction of thelegal system, exploring the countermeasures to strengthen the grass-roots water administrationlaw enforcement, in order to achieve the comprehensive development of water conservancy,provide support and protection for China's economic and social development.

　　Keywords: basic Water administration law enforcement government
 

　　目 录

　　摘 要……I

　　Abstract……II

　　1.绪 论……1

　　1.1 论文选题的理由或意义……1

　　1.1.1 选题的背景……1

　　1.1.2 选题的意义……2

　　1.2 国内外关于该课题的研究现状……2

　　1.2.1 国外研究综述……3

　　1.2.2 国内研究综述……4

　　1.3 论文研究目标及方法……4

　　1.3.1 研究目标……4

　　1.3.2 研究方法……5

　　1.4 研究内容及创新特色……5

　　1.4.1 研究内容……5

　　1.4.2 创新特色……5

　　2.水行政执法的概念及相关理论……6

　　2.1 水行政执法概念……6

　　2.1.1 水行政执法的定义……6

　　2.1.2 水行政执法的特征……6

　　2.1.3 水行政执法的生效条件……8

　　2.1.4 水行政执法行为的分类……9

　　2.1.5 基层水事案件分类……12

　　2.2 水行政执法相关理论……15

　　3.我国基层水政执法中存在的问题及原因……17

　　3.1 基层水政执法存在的主要问题表现……17

　　3.1.1 水行政执法部门权威性不足……17

　　3.1.2 涉水法律法规体系不完善……17

　　3.1.3 地方政府干扰水行政执法现象严重……18

　　3.1.4 公民水资源法制意识淡薄……18

　　3.1.5 水行政执法机构权责混乱，难以形成合力……19

　　3.1.6 基层水政执法能力严重不足……19

　　3.2 基层水政执法中存在问题的原因……20

　　3.2.1 国家及地方政府对水政执法缺少关注度……20

　　3.2.2 片面追求经济利益最大化……20

　　3.2.3 基层执法主体软弱制约水政执法工作的开展……21

　　3.2.4 落实国家水法宣传大打折扣……22

　　3.2.5 水政执法工作缺少激励约束机制……23

　　3.2.6 执法监督体制机制不健全 水行政执法监督需要加强……23

　　3.2.7 水政执法信息化建设不完善……24

　　4.加强基层水政执法的对策措施……26

　　4.1 加大法制建设 依法推进水利事业发展……26

　　4.1.1 完善配套法律法规……26

　　4.1.2 加大水政执法处罚力度……26

　　4.2 加强基层执法规范化建设 夯实基层执法基础……27

　　4.2.1 优化基层水利机构设置……27

　　4.2.2 健全基层执法网络……28

　　4.3 进一步加强机制建设 提高执法科学化水平……28

　　4.3.1 建立健全内部执法运行机制……28

　　4.3.2 建立健全系统内联合执法网络……29

　　4.3.3 建立健全横向联动执法机制……29

　　4.4 提高基层执法能力 创造执法新环境……30

　　4.4.1 执法信息化建设……30

　　4.4.2 构建水事案件应急响应预案……31

　　4.4.3 强化水政执法监督检查力度……31

　　4.5 不断创新执法方式 提升依法行政水平……32

　　4.5.1 创新执法模式……32

　　4.5.2 创新执法手段……33

　　结束语……34

　　参考文献……35

　　致 谢……38