取水许可制度适用范围辨析——对《取水许可管理办法》第七条的质疑  

Analysis of Rule 7 in China's Water Licensing System

作　　者：冯嘉[1] 

机构地区：[1]苏州大学法学院环境法研究中心,苏州215006

出　　处：《资源科学》2013年第3期578-584,共7页Resources Science

基　　金：中国法学会十大专项课题:"促进经济又好又快和可持续发展的法律问题研究"(编号:Cls10-9)

摘　　要：《水法》规定取水许可制度适用于直接取用江河、湖泊和地下水资源的行为,这一规定在正确区分水资源与产品水的基础上全面、合理地界定了取水许可制度的适用范围,既有效地保障了国家对水资源的科学管理,又杜绝了盲目扩大水行政许可的适用范围可能给行政相对人的合法权益和社会经济发展效率带来的不利影响。《取水许可管理办法》是关于如何实施取水许可制度的具体操作规定,也是《水法》的下位法,应当严格遵守《水法》关于取水许可制度的相关规定。然而,该《管理办法》第七条却超越了《水法》的规定,将取水许可制度的适用范围扩大至取用某些产品水的行为。该规定既违反了立法权限,不具有合法性,也不利于改善对水资源的管理和保护,同时还侵犯了取用水企业的经营自主权,违背了循环经济的发展要求,因而应当予以撤销。解决我国目前水资源开发、利用和保护存在的问题的方法不是盲目扩大行政许可的范围,而应当是强化对水资源开发利用的总量控制。The Water Law of China concerning the Water Licensing System （WLS） provides that the system applies only to behaviors that directly extract water resources from rivers, lakes and underground. By correctly distinguishing between water resources and water products, the Water Law has ensured the scientific management of water resources and avoided infringing on legal rights and social and economic development. Rules on the Water Licensing System released by China＇ s Ministry of Water Resources is an important management approach and should strictly comply with existing Water Law; however, Rule 7 provides that the WLS can apply to behaviors that obtain certain water products from drainage people or units. This clause directly violates the Water Law of China and the Ministry of Water Resources does not have the legislative power to repeal laws released by the National People＇ s Congress. The enactor of this rule announces that aims of this clause include protecting and saving water resources and strengthening ecological protection. However, the actual situation is that the illegal clause not only fails to protect and save water resources, but also infringes upon the rights of companies and enterprises. The development of a circular economy is also negatively affected by Rule 7 because it forbids obtaining water products from other drainage people or units, unless the behavior is permitted by water resource bureaus. This effectively means that waste water recycling is banned. This unlawful and subordinate rule should be repealed by the Ministry.

关 键 词：取水许可 适用范围 上位法 下位法 水资源 产品水 

分 类 号：TV213.4[水利工程—水文学及水资源]