內(nèi)河水運(yùn)，當(dāng)幸福來敲門

本刊記者 徐 華

內(nèi)河水運(yùn)，當(dāng)幸福來敲門

本刊記者 徐 華

● 水利投資盛宴，內(nèi)河航運(yùn)受益幾何？

● 《航道法》，千呼萬喚卻為何始終像霧像雨又像風(fēng)？

● 管理體制，要糾結(jié)還是要暢通？

2010年1月29日，新世紀(jì)以來中央指導(dǎo)“三農(nóng)”工作的第八個(gè)中央一號(hào)文件發(fā)布，明確將大力加強(qiáng)水利建設(shè)，多渠道籌集資金，力爭今后10年全社會(huì)水利年平均投入比2010年高出一倍，未來10年4萬億水利投資將成經(jīng)濟(jì)新引擎。1月30日，《國務(wù)院關(guān)于加快長江等內(nèi)河水運(yùn)發(fā)展的意見》出臺(tái)，提出要利用10年左右的時(shí)間，建成暢通、高效、平安、綠色的現(xiàn)代化內(nèi)河水運(yùn)體系，到2020年，全國內(nèi)河水運(yùn)貨運(yùn)量達(dá)到30億噸以上。

新出臺(tái)的兩個(gè)文件，在戰(zhàn)略層面上明確了國家的政策導(dǎo)向，會(huì)在一定程度上對(duì)內(nèi)河水運(yùn)發(fā)展帶來積極的影響，未來還將會(huì)有更多的政策優(yōu)惠，把目光和貨物引到水運(yùn)上來。目前，國家西部開發(fā)政策，以及西部地區(qū)勞動(dòng)力、土地成本相對(duì)較低，資源充沛等優(yōu)勢(shì)，吸引了許多產(chǎn)業(yè)的西遷，比如鋼廠，大型的制造業(yè)，未來，這些企業(yè)的產(chǎn)品運(yùn)輸對(duì)于水運(yùn)的依存度將會(huì)越來越大，同時(shí)也會(huì)帶動(dòng)內(nèi)河的發(fā)展。

那么，要將內(nèi)河發(fā)展確實(shí)放在戰(zhàn)略的角度來看，就要關(guān)注和正視其目前所面臨的問題。首先，還是投資問題。多年來，內(nèi)河的欠賬太多，發(fā)展始終步履維艱。航道維護(hù)不足，礙航設(shè)施繁多，使航道等級(jí)降低，航運(yùn)能力萎縮，甚至消亡。航道建設(shè)區(qū)別于公路、鐵路等交通設(shè)施，在于它投資回報(bào)的周期長，很難馬上看到效果，這一來使資金的籌集面臨巨大困難，另外，由于航道是公益性基礎(chǔ)設(shè)施，且無法像公路一樣建立起“貸款建設(shè)、收費(fèi)還貸”的籌資發(fā)展機(jī)制，導(dǎo)致籌資渠道過于狹窄、建設(shè)資金嚴(yán)重不足。況且，從公路與高鐵的貸款發(fā)展模式來看，依然存在著很大的矛盾，為了償還貸款，造成過路費(fèi)用過高，從而使物流企業(yè)成本過高，產(chǎn)生了很多衍生的社會(huì)問題，同樣，高鐵的迅速發(fā)展，借助于貸款得以實(shí)現(xiàn)，然而，高鐵運(yùn)營卻受到還貸的壓力，以北京至天津線為例，一年就虧損幾個(gè)億。所以，內(nèi)河正處在發(fā)展的起步時(shí)期，投資也會(huì)隨之而來，那么，選擇怎樣的投資模式，如何有效地利用這些投資依然需要思考。從國外的成功經(jīng)驗(yàn)來看，內(nèi)河作為國家的公益事業(yè)，投資主要由國家來承擔(dān)，美國密西西比河發(fā)展建設(shè)，主要都是政府投入。

國家提出綜合運(yùn)輸體系的全面發(fā)展，那么對(duì)這一體系的管理要在機(jī)制體制上就要從綜合與統(tǒng)一方面著手。而目前，各自為政的條塊式管理依然固我存在，只注重單一的運(yùn)輸模式的規(guī)劃，并不能將各種交通方式有效的銜接，形成綜合交通運(yùn)輸網(wǎng)絡(luò)。國家應(yīng)該有一個(gè)統(tǒng)領(lǐng)部門將各種運(yùn)輸部門統(tǒng)一管理，統(tǒng)一制定規(guī)劃。

蘇國萃全國政協(xié)委員，交通運(yùn)輸部水運(yùn)科學(xué)研究院副總工程師、研究員。曾獲“國家有突出貢獻(xiàn)中青年專家”稱號(hào)。

金義華全國政協(xié)委員，原任長江航道局黨委書記，交通運(yùn)輸部長江航務(wù)管理局黨委書記、局長。

水運(yùn)在發(fā)展低碳經(jīng)濟(jì)、低碳運(yùn)輸中具有運(yùn)量大、成本低、投資省、單位能耗低、環(huán)保等優(yōu)越性。然而，時(shí)至今日，《航道法》仍然沒有出臺(tái)，對(duì)航道資源保護(hù)、養(yǎng)護(hù)資金及管理等方面缺乏法律支持保障，影響了航道建設(shè)養(yǎng)護(hù)成果的鞏固和水運(yùn)事業(yè)的可持續(xù)發(fā)展。

現(xiàn)行航道法規(guī)層次不高，不能很好地協(xié)調(diào)水資源綜合開發(fā)利用中的各種關(guān)系。在水資源的開發(fā)中，一些地方在進(jìn)行防洪、筑壩、水電、建閘等水工工程時(shí)，各自為政。此外，在航道上建設(shè)橋梁、管道、架設(shè)電線等跨河、臨河建筑物，有的沒給水運(yùn)發(fā)展預(yù)留空間，也限制了船舶航行，有的甚至造成航道中斷。尤其是2002年修改后的《水法》，將航道資源保護(hù)的一些內(nèi)容刪除，這樣在水資源綜合開發(fā)利用發(fā)生矛盾時(shí)，就不能很好地協(xié)調(diào)水運(yùn)與防洪、發(fā)電等各方面的關(guān)系。現(xiàn)有航道法規(guī)不能很好地適應(yīng)形勢(shì)發(fā)展的需要。隨著我國社會(huì)經(jīng)濟(jì)的發(fā)展，現(xiàn)有航道法規(guī)內(nèi)容已明顯不適應(yīng)社會(huì)發(fā)展的要求。另外，作為水路運(yùn)輸?shù)乃拇笠刂坏暮降?，其開發(fā)、建設(shè)資金的投入也需要法律法規(guī)的支撐。航道部門的執(zhí)法缺乏依據(jù)，不能有效保護(hù)和管理航道資源。近年來，國家在保證審批制度改革和清理違法行政處罰工作中，交通部門對(duì)攔河、臨河、跨（過）河建筑物的審批及對(duì)采挖河砂的審批常常受到法律依據(jù)方面的質(zhì)疑。另外對(duì)海損中的存留在航道中沉船，航道基礎(chǔ)設(shè)施被損等，由于沒有專門的《航道法》設(shè)定相應(yīng)的行政處罰措施，航道部門的執(zhí)法缺乏依據(jù)，不能有效保護(hù)和管理航道資源。

為此，加快出臺(tái)《航道法》，對(duì)航道的規(guī)劃、建設(shè)和養(yǎng)護(hù)的資金、航道的保護(hù)及管理提高到國家法律層面，以更好地適應(yīng)社會(huì)經(jīng)濟(jì)發(fā)展對(duì)水運(yùn)的要求。

一直以來，三峽樞紐工程通航建筑物及配套設(shè)施在工程建設(shè)期采取的是業(yè)主負(fù)責(zé)的管理體制，通航建筑物由業(yè)主委托給交通部門管理，其運(yùn)行維護(hù)管理經(jīng)費(fèi)由三峽總公司提供，在三峽電站電力成本中列支。十多年的運(yùn)行實(shí)踐證明，交通運(yùn)輸部門實(shí)行的這種高度集中的綜合管理模式較好地適應(yīng)了三峽和葛洲壩兩壩特殊江段的管理，有力促進(jìn)了長江航運(yùn)生產(chǎn)力發(fā)展，消除了重大安全隱患，保證了三峽工程建設(shè)。但從長遠(yuǎn)來看，委托管理方式造成管理體制不順、職責(zé)不清，不利于永久通航的管理。

為此，建議完善三峽樞紐工程通航建筑物運(yùn)行管理主體和事權(quán)范圍。將三峽通航建筑物納入長江航運(yùn)一體化管理，明確交通運(yùn)輸部所屬的長江三峽通航管理局對(duì)三峽樞紐工程通航建筑物的管理主體地位，負(fù)責(zé)三峽通航建筑物的運(yùn)行與維護(hù)管理。三峽樞紐工程通航建筑物管理經(jīng)費(fèi)由國家財(cái)政安排。

同時(shí)，建立三峽和葛洲壩樞紐管理國家級(jí)協(xié)調(diào)機(jī)制。為保證實(shí)現(xiàn)三峽和葛洲壩工程防洪、發(fā)電、航運(yùn)三大效益的發(fā)揮和長江航運(yùn)一體化的系統(tǒng)管理，建議組建國家級(jí)協(xié)調(diào)機(jī)構(gòu)，防洪、電力、交通運(yùn)輸?shù)炔块T參與，負(fù)責(zé)協(xié)調(diào)通航建筑物運(yùn)行過程中防洪、發(fā)電、航運(yùn)等方面的相關(guān)工作。

On Jan 29th, 2011, the eighth central government No.1 document guiding the work of “agriculture,countryside and farmer ” since the new century was issued. It clearly states that hydraulic construction should be vigorously strengthened and that funds should be raised through various channels to ensure that the average annual investment in hydraulic construction double that in 2010 for the next 10 years. The four trillion investment in hydraulic construction in the next ten years will be the new engine of economic development. On Jan. 30th, the “State Council comments on accelerating the development of the waterborne transportation in the Yangtze River and other inland waterways ”was issued,putting forward the construction of unblocked, efficient,safe and green modern river transportation system in the next ten years, and the volume of goods transported in the national inland waterways be over 3 billion tons by 2020.The development of inland waterborne transportation should be seen from the strategic perspective and the current problems should be paid attention to and be faced squarely. First, it is the problem of investment.Construction of shipping lanes is different from that of road, railway and other transportation facilities in that its cycle of investment return is long, and there is no immediate effect, which makes the raise of funds difficult. Besides, shipping channel is the fundamental facility for the public good and the fund-raising system

Su Guocui, the member of the national committee of CPPCC points out that the two documents newly issued defines the national policy orientation on the strategic level, and will to some degree have a positive inf l uence to the development of inland waterborne transportation.There will be more preferential policies in the future and attention and cargo will be allured to the waterborne transportation.of “construction on loan, paying off through fares” for road construction cannot be established for the shipping channels, this makes the channels to raise funds for shipping channel construction very few and the funds for construction very insuff i cient. Moreover, judging from the development modes of loan for road and railway, there still exist big conf l icts. In order to pay off the loan, tolls have been set too high, this leads to the high cost for logistics enterprises which in turn causes many social problems.Similarly, the fast development of high-speed railways is realized by way of loans. However, the operation of highspeed railways has the pressure of paying off loans. Take the railway from Beijing to Tianjin as an example, a loss of RMB 8 billion is recorded for a single year. Therefore,inland waterway is in the initial development period, and the investment will come later on. Which investment mode should be chosen and how to use effectively these investments are questions which merit consideration.Judging from the successful experience abroad, as the national public welfare establishments, investment should be provided by the government. The US government has provided the main investment in the 300-year-old Mississippi River.

The committee member, Jin Yihua thinks that for the development of low carbon economy and transportation,waterborne transport has the advantages of large transportation volume, low cost, less investment, low energy consumption and environmental protection.However, up to now, “Law of Navigation Channels”has not yet been introduced, this makes the protection of channel resources, maintenance of funds and management be in the need of the legal support and guarantee, which affects the strengthening of the achievements of channel construction and maintenance and the sustainable development of waterborne transportation industry.

The current laws and regulations for navigational channels are of low level and can not coordinate well the various relations in the comprehensive development and utilization of water resources. In some places, for the development of water resource, the authorities act separately and independently in the course of the projects such as flood control, dams construction,hydropower, sluices construction and other hydraulic works. In addition,when setting up buildings near or across the river, such as bridges,pipe lines and electric lines, sometimes no space is reserved for the development of waterborne transportation which limits the navigation of ships and even blocks the channel. Particularly, the “Law of Water ” as amended in 2002 deleted some contents of the protection of channel resources, which has made it impossible to coordinate the relations between waterborne transportation and flood control and hydraulic power generation when conf l icts arise in the course of comprehensive exploitation of water resources. The current laws and regulations for navigational channel can not adapt to the needs of the development of the situation.

With the development of China’s social economy, the current laws and regulations for navigational channels obviously do not correspond to the demand of social development. In addition, as one of the four elements of waterborne transportation, navigational channels should have the support of laws and regulations for its development and investment of construction funds. Lack of laws for the enforcement by the authorities will make it impossible to effectively protect and manage channel resource. In recent years, in the course of the work of reforming review and approval system and clearing illegal administrative penalties,authorities responsible for transportation have always been questioned in terms of legal grounds for their review and approval of buildings set up near or across the river or their review and approval of river sand exploitation. In addition, as regards the wreck remaining in the channel and channel infrastructure damage, the lack of a specif i c administrative penalty in the “Law of Navigational Channel” has left the authorities with no legal grounds and the channel resource cannot be effectively protected and managed.

Therefore, the introduction of a "Law of Navigational Channel"should be accelerated. The plans of channels, fund for construction and maintenance, protection and management of channels should be promoted to the national law level in order to better adapt to the waterborne transportation required for the social economic development.

Inland Waterway Transportation,Pursuit of Happiness

Reporter Xu Hua