徐贵一 李岚红

摘 要：近年来，在黄河治理实践中暴露出来诸多热点和难点问题，如在黄河生态保护与高质量发展中黄河立法的定位问题、黄河管理体制及执法难点问题，以及全面实行黄河河长制和东平湖湖长制、黄河河道土地利用和清障执法主体、涉河建设项目建设管理、堤顶道路通行安全、黄河浮桥建设和管理、黄河溺水事件等的法律责任问题。为给黄河流域生态保护和高质量发展以及黄河立法提供借鉴，通过实地调研和走访研究，依据上位法并借鉴其他省份黄河立法，在厘清《山东省黄河条例（草案）》的立法定位、明确黄河流域管理与地方区域管理的权力划分与协调关系，以及黄河治理保护与地方经济发展的冲突与协调关系的基础上，对山东黄河治理的热点难点问题进行分析研究，提出相应立法规范的建议，并将其结论纳入《山东省黄河条例（草案）》。

关键词：黄河生态保护;黄河管理体制;河长制;河道管理;法律责任

中图分类号：D927;D922.66;TV882.1 文献标志码：A

doi：10.3969/j.issn.1000-1379.2021.05.001

Abstract：In recent years， many hot and difficult issues have been exposed in the practice of the Yellow River management， such as the positioning of the Yellow River legislation in the ecological protection and high-quality development of the Yellow River， the difficulties of the Yellow River management system and law enforcement， the comprehensive implementation of the Yellow River chief system and the Dongping Lake chief system， the main body of law enforcement in land use and obstacle removal of the Yellow River， the construction and management of river related projects， and the traffic safety of embankment road， construction and management of the floating bridge and the legal liability of the drowning accident. Based on the on-the-spot investigation and visiting research， according to the superior law and the Yellow River legislation of other provinces， this paper analyzed the hotspot and difficult issues of the Yellow River governance on the basis of clarifying the legislative orientation of the Yellow River Regulations of Shandong Province （Draft）， clarifying the power division and coordination relationship between the Yellow River basin governance and local regional governance， and the conflict and coordination relationship between the Yellow River governance and protection and local economic development. It put forward suggestions on the corresponding legislative norms and its conclusions into the Yellow River Regulations of Shandong Province （Draft）. At the same time， it also provided legislative experience and practical exploration for national ecological protection strategy and high-quality development of the Yellow River basin， as well as the ongoing Yellow River legislation work of the Yellow River Conservancy Commission.

Key words： ecological protection of Yellow River; management system of Yellow River; river chief system; river management; legal responsibility

2019年9月，習近平总书记在黄河流域生态保护和高质量发展座谈会上发表重要讲话，把黄河流域生态保护和高质量发展上升为国家重大战略。2020年8月，中共中央审议通过《黄河流域生态保护和高质量发展规划纲要》。根据新形势、新要求，及时更新黄河立法内容、大力推进依法治水、提高黄河治理能力和水平等成为新时代黄河治理保护的新要求。

目前，黄河流域存在经济社会发展布局与水资源水环境承载能力不匹配、经济发展方式较为粗放、新旧动能转换和基础设施建设相对滞后等问题，深刻影响着流域高质量发展[1]。……