農業面源污染防治的法律思考
摘(zhai)要(yao)：農業面(mian)源污染(ran)防(fang)治的法(fa)律思考-
關鍵(jian)詞：農業,污染,防治(zhi),法律,思考
面(mian)源(yuan)污(wu)(wu)(wu)染(ran),是(shi)(shi)指(zhi)溶解性(xing)或固體污(wu)(wu)(wu)染(ran)物在大(da)(da)面(mian)積(ji)降水(shui)和徑流沖刷作用(yong)下匯(hui)入地表水(shui)體而引起的(de)(de)(de)(de)污(wu)(wu)(wu)染(ran)。與點(dian)源(yuan)污(wu)(wu)(wu)染(ran)相比,非點(dian)源(yuan)污(wu)(wu)(wu)染(ran)的(de)(de)(de)(de)時空范圍(wei)更(geng)廣,不確(que)定性(xing)更(geng)大(da)(da),過程(cheng)更(geng)復雜,污(wu)(wu)(wu)染(ran)更(geng)嚴(yan)重,因而加大(da)(da)了相應(ying)的(de)(de)(de)(de)研究、治理及(ji)管理的(de)(de)(de)(de)難(nan)(nan)度[1]。面(mian)源(yuan)污(wu)(wu)(wu)染(ran)規模大(da)(da)，特別是(shi)(shi)防(fang)治困(kun)難(nan)(nan)，已經(jing)成為(wei)危害全球生(sheng)(sheng)(sheng)態(tai)環(huan)境的(de)(de)(de)(de)一個(ge)重要(yao)因素非點(dian)源(yuan)污(wu)(wu)(wu)染(ran)。我國(guo)(guo)面(mian)對巨大(da)(da)的(de)(de)(de)(de)人口壓(ya)力(li),為(wei)使農(nong)業土(tu)地資(zi)源(yuan)充分(fen)得(de)到使用(yong)與利用(yong),化(hua)肥和農(nong)藥(yao)(yao)的(de)(de)(de)(de)施用(yong)成為(wei)提(ti)高(gao)土(tu)地產出水(shui)平的(de)(de)(de)(de)重要(yao)手(shou)段。然而,化(hua)肥和農(nong)藥(yao)(yao)的(de)(de)(de)(de)大(da)(da)量使用(yong)造成土(tu)壤、水(shui)體(河流、湖泊、海灣)和大(da)(da)氣(qi)環(huan)境質(zhi)量的(de)(de)(de)(de)污(wu)(wu)(wu)染(ran),成為(wei)我國(guo)(guo)農(nong)業面(mian)源(yuan)污(wu)(wu)(wu)染(ran)的(de)(de)(de)(de)最(zui)主(zhu)要(yao)誘因，我國(guo)(guo)許多城市(shi)和地區的(de)(de)(de)(de)農(nong)業面(mian)源(yuan)污(wu)(wu)(wu)染(ran)是(shi)(shi)面(mian)源(yuan)污(wu)(wu)(wu)染(ran)的(de)(de)(de)(de)主(zhu)要(yao)來(lai)源(yuan)。中國(guo)(guo)是(shi)(shi)一個(ge)農(nong)業大(da)(da)國(guo)(guo)，農(nong)村是(shi)(shi)農(nong)民生(sheng)(sheng)(sheng)產與生(sheng)(sheng)(sheng)活的(de)(de)(de)(de)基地，是(shi)(shi)全國(guo)(guo)人民生(sheng)(sheng)(sheng)活的(de)(de)(de)(de)源(yuan)泉，近年來(lai)我國(guo)(guo)農(nong)村生(sheng)(sheng)(sheng)態(tai)環(huan)境惡化(hua)嚴(yan)重，防(fang)治農(nong)業面(mian)源(yuan)污(wu)(wu)(wu)染(ran)，提(ti)高(gao)農(nong)產品質(zhi)量，是(shi)(shi)國(guo)(guo)民經(jing)濟的(de)(de)(de)(de)根本，關(guan)系到社會(hui)經(jing)濟的(de)(de)(de)(de)可持(chi)續(xu)發展。農(nong)業面(mian)源(yuan)污(wu)(wu)(wu)染(ran)控制(zhi)對農(nong)村生(sheng)(sheng)(sheng)態(tai)環(huan)境保(bao)護、全面(mian)建設(she)小康社會(hui)以及(ji)生(sheng)(sheng)(sheng)態(tai)文(wen)明建設(she)都具(ju)有重要(yao)意(yi)義。
一(yi)、中(zhong)國農(nong)業面源污染概況(kuang)
農(nong)業(ye)面源(yuan)污染是指由農(nong)業(ye)生(sheng)產(chan)活動引(yin)起的(de)、時(shi)空上(沉(chen)淀物、化肥(fei)、農(nong)藥、鹽分、病菌等)在各(ge)種應力作用(yong)下以低濃度、大(da)(da)范(fan)圍的(de)形式(shi)緩慢地在土壤圈內運(yun)動并且從土壤圈向(xiang)水(shui)圈、大(da)(da)氣圈擴散,對大(da)(da)氣、水(shui)、土壤造成的(de)污染[2]農(nong)業(ye)面源(yuan)污染具有三個主要特點(dian):
一(yi)是(shi)污染源(yuan)的(de)分散性(xing)與隱蔽性(xing)。
農村面源污(wu)染(ran)(ran)(ran)不像點源污(wu)染(ran)(ran)(ran)那樣(yang)污(wu)染(ran)(ran)(ran)源相(xiang)對(dui)集(ji)(ji)中。排放的分散(san)性(xing)導致(zhi)其地(di)理(li)邊界(jie)和空間(jian)位(wei)置不易識別。此外,污(wu)染(ran)(ran)(ran)源的分散(san)性(xing)造成污(wu)染(ran)(ran)(ran)物排放的分散(san)性(xing),致(zhi)使其空間(jian)位(wei)置和涉及范圍難以確定(ding)。如城市(shi)生(sheng)活污(wu)水主要(yao)是通過統一排污(wu)口(kou)，集(ji)(ji)中排放，可在排污(wu)口(kou)進行污(wu)水處理(li)，以減輕其污(wu)染(ran)(ran)(ran)。而農村面源污(wu)染(ran)(ran)(ran)源在降水或融雪(xue)的沖刷作用下，將會流向不特定(ding)的土地(di)、水體等，其分散(san)性(xing)造成的污(wu)染(ran)(ran)(ran)范圍之廣是難以估測的。
二是隨機性和(he)不確定性。大(da)(da)多數(shu)農(nong)田面源污(wu)染涉及隨機變量和(he)隨機影(ying)(ying)響。污(wu)染受到降雨(yu)時間(jian)的影(ying)(ying)響較大(da)(da),因而其污(wu)染發(fa)生具有較大(da)(da)的隨機性例(li)如,農(nong)作物的生產會受到自然(天氣等(deng))的影(ying)(ying)響,因為降雨(yu)量的大(da)(da)小和(he)密(mi)度、溫(wen)度、濕度的變化會直接影(ying)(ying)響化學制品(農(nong)藥(yao)和(he)化肥等(deng))對水體的污(wu)染情況。
三是廣泛性(xing)(xing)和不易監測性(xing)(xing)。
農業面(mian)源(yuan)污染(ran)涉及多個污染(ran)者,在給定的(de)區域內(nei)它們(men)的(de)排(pai)(pai)放是(shi)相互(hu)交(jiao)叉的(de),加之不同的(de)地(di)理、氣象、水文條件對(dui)污染(ran)物(wu)的(de)遷移轉化影(ying)響很大,因此(ci)很難(nan)具(ju)(ju)體監測到單個污染(ran)者的(de)排(pai)(pai)放量。其(qi)實,面(mian)源(yuan)污染(ran)也可以(yi)通過高科(ke)技手段具(ju)(ju)體識(shi)別和監測,只是(shi)由于目前信息和管(guan)理成本過高。
四是防(fang)(fang)治的(de)(de)困(kun)難(nan)(nan)性。農(nong)業面(mian)源中由于這(zhe)些溶解的(de)(de)和固體的(de)(de)污(wu)染(ran)物(wu)在降水或融雪的(de)(de)沖刷作用下，將會流向不(bu)特定的(de)(de)土(tu)地(di)、水體等，在這(zhe)個(ge)過程中，各種污(wu)染(ran)物(wu)發生混合，有(you)可(ke)能通過物(wu)理(li)、化學、生物(wu)等作用，而產生更復雜(za)的(de)(de)新污(wu)染(ran)物(wu)，對(dui)環境造成二次污(wu)染(ran)，甚至(zhi)多次污(wu)染(ran)，由于其污(wu)染(ran)的(de)(de)范(fan)圍廣泛，這(zhe)樣就(jiu)加大了(le)對(dui)農(nong)業面(mian)源污(wu)染(ran)的(de)(de)防(fang)(fang)治難(nan)(nan)度(du)。
二、農業面源(yuan)污染(ran)的原因及(ji)影響
(一)化肥、農藥不合(he)理使用
基于我國(guo)(guo)目前國(guo)(guo)情，耕(geng)地(di)(di)面積少，人(ren)口壓力大，為(wei)了(le)解決(jue)糧食問(wen)題，提高土地(di)(di)的(de)(de)(de)畝產(chan)量，主要依賴(lai)于化(hua)(hua)(hua)肥(fei)(fei)和農(nong)藥的(de)(de)(de)使用(yong)。盲目地(di)(di)過量使用(yong)化(hua)(hua)(hua)肥(fei)(fei)以及施肥(fei)(fei)不(bu)合理,使化(hua)(hua)(hua)肥(fei)(fei)帶來的(de)(de)(de)環(huan)境(jing)污(wu)染(ran)日益突出。我國(guo)(guo)氮肥(fei)(fei)的(de)(de)(de)利用(yong)率僅為(wei)30%~35%,磷肥(fei)(fei)為(wei)10%~20%,鉀(jia)肥(fei)(fei)為(wei)35%~50%[3]。化(hua)(hua)(hua)肥(fei)(fei)流(liu)失量高，未被利用(yong)的(de)(de)(de)大量化(hua)(hua)(hua)肥(fei)(fei)通過徑流(liu)、淋溶等方(fang)式污(wu)染(ran)了(le)地(di)(di)表水(shui)(shui)環(huan)境(jing)，更有甚者造(zao)成(cheng)湖泊(bo)等的(de)(de)(de)富養化(hua)(hua)(hua)。據統計,我國(guo)(guo)每(mei)年施用(yong)的(de)(de)(de)農(nong)藥達50~60萬噸,其中約(yue)有80%的(de)(de)(de)農(nong)藥直接(jie)進入環(huan)境(jing)[4],農(nong)藥污(wu)染(ran)已成(cheng)為(wei)影響范(fan)圍(wei)最大的(de)(de)(de)一種有機(ji)污(wu)染(ran)，農(nong)藥在(zai)噴灑時也只有小部分(fen)附著(zhu)在(zai)農(nong)作物上，大部分(fen)農(nong)藥則(ze)流(liu)失在(zai)空氣、土壤、水(shui)(shui)體中，這樣(yang)就造(zao)成(cheng)了(le)大氣污(wu)染(ran)、土壤污(wu)染(ran)、水(shui)(shui)體污(wu)染(ran)，同時農(nong)藥被植物吸收(shou)之后，有害(hai)物質在(zai)植物體內累積，降低農(nong)產(chan)品質量，危害(hai)著(zhu)人(ren)們的(de)(de)(de)生命健康。
(二)農膜(mo)地膜(mo)的大(da)量使用(yong)
據統計(ji),我(wo)國農(nong)(nong)膜(mo)(mo)年殘(can)留(liu)量(liang)高達35萬t,殘(can)膜(mo)(mo)率達42%[5]農(nong)(nong)膜(mo)(mo)的(de)(de)大(da)量(liang)使用固然(ran)帶(dai)(dai)來了巨大(da)的(de)(de)經(jing)濟效益(yi),但(dan)也(ye)給農(nong)(nong)田土(tu)壤(rang)帶(dai)(dai)來了“白色污(wu)(wu)染(ran)”，農(nong)(nong)膜(mo)(mo)殘(can)留(liu)也(ye)成為農(nong)(nong)業面源(yuan)污(wu)(wu)染(ran)的(de)(de)重要來源(yuan)。農(nong)(nong)膜(mo)(mo)屬于(yu)有機高分子化(hua)學(xue)聚合物(wu),其(qi)回收率又(you)很低，在土(tu)壤(rang)中難降解,這樣便殘(can)留(liu)于(yu)土(tu)壤(rang)中，使土(tu)壤(rang)的(de)(de)結構被破壞，造成耕(geng)地土(tu)壤(rang)理化(hua)性(xing)狀惡化(hua)，影響土(tu)地的(de)(de)產量(liang)。農(nong)(nong)膜(mo)(mo)中所含的(de)(de)聯苯酚、鄰(lin)苯二甲酸酯等還會對(dui)農(nong)(nong)產品帶(dai)(dai)來污(wu)(wu)染(ran),危害人類健康[6]。
(三(san))焚燒秸(jie)桿造成污染
現(xian)在(zai)我國大部分(fen)農(nong)村地區采用(yong)焚燒(shao)來(lai)處理秸稈(gan)。由于秸稈(gan)產(chan)量的(de)增加及燃料結構(gou)的(de)調整，以前作為燃料的(de)秸稈(gan)，現(xian)在(zai)農(nong)民則主要通(tong)過(guo)露天將其焚燒(shao)處理，產(chan)生大量的(de)有害氣體，除造成(cheng)空氣污染外(wai)，還會(hui)因釋放大量的(de)二氧(yang)化碳進入大氣層(ceng)中，進而產(chan)生了(le)溫室效應，破壞了(le)臭氧(yang)層(ceng)，這種方式既浪費資源又(you)污染環境。焚燒(shao)秸稈(gan)產(chan)生的(de)煙霧會(hui)對人(ren)體健康(kang)產(chan)生威脅(xie),同時(shi)造成(cheng)空氣能見度降(jiang)低,影響交(jiao)通(tong)安全。
(四)集約化畜禽(qin)養殖場(chang)缺乏處理能力(li)
集約化畜禽養殖場缺乏(fa)處理條件，將糞(fen)(fen)便(bian)(bian)隨(sui)意堆放，不但產生(sheng)惡臭、蚊蠅滋生(sheng)，不但對大氣造(zao)成(cheng)污(wu)染(ran)，而(er)且在(zai)進入水(shui)體或(huo)滲(shen)入淺層(ceng)地下(xia)水(shui)后，大量(liang)消耗氧氣，使水(shui)中(zhong)的其它(ta)微生(sheng)物無法存活，對水(shui)體產生(sheng)嚴重的污(wu)染(ran)，還有很多(duo)沒有經過發酵的糞(fen)(fen)便(bian)(bian)直接(jie)進入田(tian)地，糞(fen)(fen)便(bian)(bian)中(zhong)的有害(hai)細菌污(wu)染(ran)土(tu)壤，嚴重影響作物的生(sheng)長。
(五)農村生活污水和生活垃(la)圾
近年來(lai)，隨著農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)城市化發展(zhan),農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)生(sheng)(sheng)活(huo)污(wu)水(shui)(shui)(shui)(shui)(shui)和(he)生(sheng)(sheng)活(huo)垃(la)圾(ji)地排(pai)放(fang)(fang)量和(he)污(wu)染(ran)(ran)物(wu)種(zhong)類有大(da)幅(fu)度(du)增加(jia)的(de)(de)趨勢,勢必造成(cheng)(cheng)(cheng)對(dui)環(huan)(huan)境(jing)的(de)(de)污(wu)染(ran)(ran)的(de)(de)加(jia)重(zhong)。農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)生(sheng)(sheng)活(huo)污(wu)水(shui)(shui)(shui)(shui)(shui)和(he)生(sheng)(sheng)活(huo)垃(la)圾(ji)由于(yu)受農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)自身條件約(yue)束，很難進行統(tong)一(yi)集(ji)中排(pai)放(fang)(fang)，他們(men)排(pai)放(fang)(fang)具有一(yi)定(ding)隨意性，分(fen)散性。生(sheng)(sheng)活(huo)污(wu)水(shui)(shui)(shui)(shui)(shui)的(de)(de)隨意排(pai)放(fang)(fang)給防治其造成(cheng)(cheng)(cheng)環(huan)(huan)境(jing)污(wu)染(ran)(ran)帶來(lai)相當大(da)的(de)(de)難度(du)，特別(bie)是(shi)污(wu)水(shui)(shui)(shui)(shui)(shui)灌(guan)溉(gai),由于(yu)大(da)量未(wei)經(jing)處(chu)理的(de)(de)污(wu)水(shui)(shui)(shui)(shui)(shui)直(zhi)接用于(yu)農(nong)(nong)(nong)(nong)(nong)田灌(guan)溉(gai),造成(cheng)(cheng)(cheng)土壤、作(zuo)物(wu)及地表水(shui)(shui)(shui)(shui)(shui)和(he)地下水(shui)(shui)(shui)(shui)(shui)的(de)(de)嚴(yan)重(zhong)污(wu)染(ran)(ran)。污(wu)水(shui)(shui)(shui)(shui)(shui)灌(guan)溉(gai)已經(jing)成(cheng)(cheng)(cheng)為我國農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)水(shui)(shui)(shui)(shui)(shui)環(huan)(huan)境(jing)污(wu)染(ran)(ran)的(de)(de)主(zhu)要原因之一(yi),并直(zhi)接形(xing)成(cheng)(cheng)(cheng)了(le)對(dui)污(wu)水(shui)(shui)(shui)(shui)(shui)灌(guan)溉(gai)區(qu)飲水(shui)(shui)(shui)(shui)(shui)及食物(wu)安全(quan)的(de)(de)危害。影響農(nong)(nong)(nong)(nong)(nong)民的(de)(de)用水(shui)(shui)(shui)(shui)(shui)安全(quan)。農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)生(sheng)(sheng)活(huo)垃(la)圾(ji)由于(yu)受農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)條件限制，農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)垃(la)圾(ji)不能得到統(tong)一(yi)科學合理的(de)(de)處(chu)理，廣大(da)農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)地區(qu)垃(la)圾(ji)隨意倒放(fang)(fang)現(xian)象尤其嚴(yan)重(zhong)，造成(cheng)(cheng)(cheng)蚊蠅滿天飛，病毒得到傳播，而且通過風(feng)力(li)作(zuo)用使空(kong)氣(qi)環(huan)(huan)境(jing)變劣，造成(cheng)(cheng)(cheng)大(da)氣(qi)污(wu)染(ran)(ran)。農(nong)(nong)(nong)(nong)(nong)村(cun)(cun)(cun)垃(la)圾(ji)在(zai)雨雪的(de)(de)沖(chong)刷下污(wu)染(ran)(ran)村(cun)(cun)(cun)河及地下水(shui)(shui)(shui)(shui)(shui)，特別(bie)是(shi)河道兩旁，垃(la)圾(ji)入(ru)河污(wu)染(ran)(ran)現(xian)象十(shi)分(fen)嚴(yan)重(zhong)，影響人畜(chu)飲用水(shui)(shui)(shui)(shui)(shui)質量。
三(san)、我國農業面源污染(ran)防治立法存(cun)在的(de)缺陷(xian)
目(mu)前(qian)一些法(fa)津中有(you)針(zhen)對農藥化肥、土壤污染、大(da)氣污染的相關法(fa)律(lv)(lv)，但都是零星規(gui)定，且分(fen)散(san)不成體系(xi)，法(fa)律(lv)(lv)規(gui)范過于(yu)原則，針(zhen)對農業面源污染的防治缺乏具(ju)有(you)實際可操(cao)作性的法(fa)律(lv)(lv)規(gui)定。
首先，缺乏(fa)專門(men)(men)的(de)(de)(de)(de)農(nong)(nong)(nong)業(ye)(ye)面(mian)源(yuan)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)的(de)(de)(de)(de)立法(fa)。目前，我國(guo)沒(mei)有(you)(you)整體(ti)和(he)(he)(he)系統的(de)(de)(de)(de)農(nong)(nong)(nong)業(ye)(ye)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)法(fa)律，《農(nong)(nong)(nong)業(ye)(ye)法(fa)》、《環(huan)(huan)(huan)境(jing)保護法(fa)》、《水污(wu)染(ran)(ran)法(fa)》、《土壤法(fa)》等都在(zai)一定(ding)(ding)(ding)程度上涉(she)及(ji)了農(nong)(nong)(nong)業(ye)(ye)污(wu)染(ran)(ran)的(de)(de)(de)(de)防(fang)(fang)治(zhi)(zhi)，但(dan)主要針對(dui)(dui)于(yu)(yu)工業(ye)(ye)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)，相(xiang)對(dui)(dui)于(yu)(yu)工業(ye)(ye)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)法(fa)規(gui)體(ti)系來(lai)說，針對(dui)(dui)農(nong)(nong)(nong)業(ye)(ye)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)的(de)(de)(de)(de)法(fa)制(zhi)(zhi)(zhi)建設(she)還(huan)很滯后，農(nong)(nong)(nong)業(ye)(ye)面(mian)源(yuan)污(wu)染(ran)(ran)沒(mei)有(you)(you)完全(quan)納入環(huan)(huan)(huan)境(jing)控制(zhi)(zhi)(zhi)之中，雖然國(guo)家也針對(dui)(dui)主要污(wu)染(ran)(ran)源(yuan)農(nong)(nong)(nong)藥和(he)(he)(he)化(hua)肥(fei)頒布實(shi)施了一些行政法(fa)規(gui)和(he)(he)(he)部(bu)門(men)(men)規(gui)章，但(dan)未將污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)作為立法(fa)重(zhong)點(dian)，如《肥(fei)料登記管(guan)理(li)辦法(fa)》的(de)(de)(de)(de)主要內容(rong)(rong)是(shi)(shi)肥(fei)料登記的(de)(de)(de)(de)申(shen)請、審批和(he)(he)(he)管(guan)理(li)，沒(mei)有(you)(you)對(dui)(dui)肥(fei)料使(shi)(shi)(shi)用(yong)(yong)造(zao)成(cheng)(cheng)(cheng)的(de)(de)(de)(de)環(huan)(huan)(huan)境(jing)污(wu)染(ran)(ran)的(de)(de)(de)(de)防(fang)(fang)治(zhi)(zhi);《肥(fei)料管(guan)理(li)條(tiao)例(li)(征求意見稿)》雖然涉(she)及(ji)肥(fei)料生(sheng)(sheng)產(chan)、營銷、使(shi)(shi)(shi)用(yong)(yong)多(duo)個(ge)環(huan)(huan)(huan)節，但(dan)化(hua)肥(fei)的(de)(de)(de)(de)安全(quan)使(shi)(shi)(shi)用(yong)(yong)仍是(shi)(shi)立法(fa)的(de)(de)(de)(de)空白。《農(nong)(nong)(nong)藥安全(quan)使(shi)(shi)(shi)用(yong)(yong)規(gui)定(ding)(ding)(ding)》是(shi)(shi)關于(yu)(yu)農(nong)(nong)(nong)藥的(de)(de)(de)(de)購買、運輸、保管(guan)、使(shi)(shi)(shi)用(yong)(yong)的(de)(de)(de)(de)技術規(gui)范，沒(mei)有(you)(you)對(dui)(dui)防(fang)(fang)止農(nong)(nong)(nong)藥造(zao)成(cheng)(cheng)(cheng)環(huan)(huan)(huan)境(jing)污(wu)染(ran)(ran)的(de)(de)(de)(de)規(gui)定(ding)(ding)(ding)。《農(nong)(nong)(nong)藥管(guan)理(li)條(tiao)例(li)》的(de)(de)(de)(de)核(he)心內容(rong)(rong)局限于(yu)(yu)農(nong)(nong)(nong)藥在(zai)生(sheng)(sheng)產(chan)、經營和(he)(he)(he)使(shi)(shi)(shi)用(yong)(yong)方面(mian)的(de)(de)(de)(de)管(guan)理(li)，對(dui)(dui)于(yu)(yu)已經登記的(de)(de)(de)(de)農(nong)(nong)(nong)藥品(pin)(pin)種(zhong)投人使(shi)(shi)(shi)用(yong)(yong)以后對(dui)(dui)生(sheng)(sheng)態(tai)環(huan)(huan)(huan)境(jing)是(shi)(shi)否(fou)(fou)造(zao)成(cheng)(cheng)(cheng)污(wu)染(ran)(ran)，對(dui)(dui)人體(ti)是(shi)(shi)否(fou)(fou)造(zao)成(cheng)(cheng)(cheng)危(wei)害，以及(ji)現有(you)(you)的(de)(de)(de)(de)對(dui)(dui)生(sheng)(sheng)態(tai)環(huan)(huan)(huan)境(jing)和(he)(he)(he)人體(ti)造(zao)成(cheng)(cheng)(cheng)污(wu)染(ran)(ran)和(he)(he)(he)危(wei)害的(de)(de)(de)(de)農(nong)(nong)(nong)藥品(pin)(pin)種(zhong)如何進行有(you)(you)效監(jian)督管(guan)理(li)則(ze)很少涉(she)及(ji)。[7]面(mian)對(dui)(dui)日益嚴重(zhong)的(de)(de)(de)(de)農(nong)(nong)(nong)業(ye)(ye)污(wu)染(ran)(ran)現狀，當務之急(ji)建立一部(bu)綜合(he)性的(de)(de)(de)(de)農(nong)(nong)(nong)業(ye)(ye)面(mian)源(yuan)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)立法(fa)，并使(shi)(shi)(shi)配(pei)(pei)套(tao)相(xiang)關實(shi)施細則(ze)，形成(cheng)(cheng)(cheng)統一配(pei)(pei)套(tao)的(de)(de)(de)(de)法(fa)律體(ti)系。筆者認為，在(zai)這(zhe)方面(mian)可以借鑒日本(ben)的(de)(de)(de)(de)成(cheng)(cheng)(cheng)功經驗，日本(ben)在(zai)控制(zhi)(zhi)(zhi)農(nong)(nong)(nong)業(ye)(ye)生(sheng)(sheng)產(chan)污(wu)染(ran)(ran)方面(mian)，制(zhi)(zhi)(zhi)定(ding)(ding)(ding)了《食物、農(nong)(nong)(nong)業(ye)(ye)、農(nong)(nong)(nong)村基本(ben)法(fa)》，與之相(xiang)配(pei)(pei)套(tao)，同年也頒布了《可持續(xu)農(nong)(nong)(nong)業(ye)(ye)法(fa)》，此后又(you)分(fen)別配(pei)(pei)套(tao)制(zhi)(zhi)(zhi)定(ding)(ding)(ding)了《食品(pin)(pin)廢棄(qi)物循環(huan)(huan)(huan)利用(yong)(yong)法(fa)》和(he)(he)(he)《堆肥(fei)品(pin)(pin)質(zhi)法(fa)》。我國(guo)可以制(zhi)(zhi)(zhi)定(ding)(ding)(ding)一部(bu)農(nong)(nong)(nong)業(ye)(ye)面(mian)源(yuan)污(wu)染(ran)(ran)防(fang)(fang)治(zhi)(zhi)法(fa)，其內容(rong)(rong)可以涵(han)蓋(gai)農(nong)(nong)(nong)業(ye)(ye)面(mian)源(yuan)污(wu)染(ran)(ran)源(yuan)的(de)(de)(de)(de)防(fang)(fang)治(zhi)(zhi)、農(nong)(nong)(nong)業(ye)(ye)生(sheng)(sheng)產(chan)中環(huan)(huan)(huan)境(jing)評價標準、對(dui)(dui)農(nong)(nong)(nong)業(ye)(ye)產(chan)品(pin)(pin)質(zhi)量監(jian)督。
其(qi)(qi)次，現(xian)行(xing)(xing)(xing)涉及(ji)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)的(de)(de)(de)(de)(de)法(fa)(fa)律(lv)(lv)(lv)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)過(guo)于(yu)(yu)(yu)原則(ze)(ze)(ze)性(xing)(xing)，不(bu)具有(you)實(shi)(shi)(shi)際(ji)的(de)(de)(de)(de)(de)操(cao)(cao)(cao)作性(xing)(xing)，缺(que)(que)乏對農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)自身(shen)特(te)點的(de)(de)(de)(de)(de)充分(fen)(fen)考慮和(he)論證。生(sheng)(sheng)(sheng)態(tai)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)是(shi)一種(zhong)(zhong)復雜的(de)(de)(de)(de)(de)系統(tong)工程，農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)包括農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)學(xue)(xue)、畜(chu)牧學(xue)(xue)、生(sheng)(sheng)(sheng)態(tai)學(xue)(xue)、環(huan)境(jing)科(ke)學(xue)(xue)及(ji)社(she)會科(ke)學(xue)(xue)等(deng)(deng)在(zai)(zai)(zai)內的(de)(de)(de)(de)(de)多種(zhong)(zhong)學(xue)(xue)科(ke)的(de)(de)(de)(de)(de)支持。但是(shi)，目前(qian)在(zai)(zai)(zai)對農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)的(de)(de)(de)(de)(de)預(yu)防(fang)(fang)(fang)和(he)治(zhi)(zhi)(zhi)理(li)措(cuo)施(shi)(shi)，沒(mei)有(you)充分(fen)(fen)照顧到(dao)(dao)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)法(fa)(fa)律(lv)(lv)(lv)自身(shen)產(chan)生(sheng)(sheng)(sheng)的(de)(de)(de)(de)(de)特(te)點，使(shi)(shi)得中國農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)防(fang)(fang)(fang)治(zhi)(zhi)(zhi)在(zai)(zai)(zai)大(da)多數法(fa)(fa)律(lv)(lv)(lv)、法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)中最終淪為(wei)一種(zhong)(zhong)倡議(yi)、一種(zhong)(zhong)生(sheng)(sheng)(sheng)態(tai)性(xing)(xing)的(de)(de)(de)(de)(de)宣言，從(cong)而(er)造(zao)成(cheng)了(le)(le)(le)許多涉及(ji)到(dao)(dao)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)的(de)(de)(de)(de)(de)法(fa)(fa)律(lv)(lv)(lv)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)在(zai)(zai)(zai)實(shi)(shi)(shi)際(ji)執行(xing)(xing)(xing)與操(cao)(cao)(cao)作中遇到(dao)(dao)困難。目前(qian)國家在(zai)(zai)(zai)《農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)法(fa)(fa)》、《環(huan)境(jing)保(bao)護(hu)法(fa)(fa)》、《水污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)法(fa)(fa)》、《固(gu)體(ti)廢物(wu)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)環(huan)境(jing)防(fang)(fang)(fang)治(zhi)(zhi)(zhi)法(fa)(fa)》等(deng)(deng)法(fa)(fa)律(lv)(lv)(lv)中涉及(ji)到(dao)(dao)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)，但其(qi)(qi)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)過(guo)于(yu)(yu)(yu)籠統(tong)，大(da)部(bu)分(fen)(fen)僅限(xian)于(yu)(yu)(yu)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，對于(yu)(yu)(yu)違反該項規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)如(ru)何處(chu)(chu)罰(fa)未有(you)明確規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，面(mian)(mian)(mian)對農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)發生(sheng)(sheng)(sheng)后在(zai)(zai)(zai)執行(xing)(xing)(xing)時沒(mei)有(you)處(chu)(chu)罰(fa)力，若干法(fa)(fa)律(lv)(lv)(lv)法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)成(cheng)為(wei)一紙(zhi)空文(wen)。在(zai)(zai)(zai)《農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)法(fa)(fa)》、《環(huan)境(jing)保(bao)護(hu)法(fa)(fa)》等(deng)(deng)多部(bu)法(fa)(fa)律(lv)(lv)(lv)中涉及(ji)防(fang)(fang)(fang)止(zhi)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)，多是(shi)根(gen)據需要(yao)在(zai)(zai)(zai)立法(fa)(fa)中增加一些(xie)條(tiao)(tiao)文(wen)，只(zhi)是(shi)提出了(le)(le)(le)該規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)所(suo)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)范的(de)(de)(de)(de)(de)主(zhu)題性(xing)(xing)內容，而(er)這些(xie)內卻(que)缺(que)(que)乏進(jin)一步的(de)(de)(de)(de)(de)具體(ti)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，法(fa)(fa)津(jin)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)不(bu)夠細化(hua)。如(ru)《農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)法(fa)(fa)》第(di)五(wu)十(shi)七條(tiao)(tiao)對合(he)理(li)利(li)用(yong)(yong)(yong)和(he)保(bao)護(hu)土(tu)地(di)、水等(deng)(deng)自然資(zi)源(yuan)進(jin)行(xing)(xing)(xing)了(le)(le)(le)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，第(di)五(wu)十(shi)八條(tiao)(tiao)對保(bao)護(hu)耕地(di)、合(he)理(li)施(shi)(shi)用(yong)(yong)(yong)化(hua)肥、農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)藥進(jin)行(xing)(xing)(xing)了(le)(le)(le)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，第(di)五(wu)十(shi)九條(tiao)(tiao)對加強(qiang)小(xiao)流域綜合(he)治(zhi)(zhi)(zhi)理(li)，預(yu)防(fang)(fang)(fang)和(he)治(zhi)(zhi)(zhi)理(li)水土(tu)流失也進(jin)行(xing)(xing)(xing)了(le)(le)(le)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，但這些(xie)有(you)關(guan)(guan)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)防(fang)(fang)(fang)治(zhi)(zhi)(zhi)的(de)(de)(de)(de)(de)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)過(guo)于(yu)(yu)(yu)原則(ze)(ze)(ze)，其(qi)(qi)中“合(he)理(li)使(shi)(shi)用(yong)(yong)(yong)化(hua)肥、農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)藥”，“合(he)理(li)”規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)的(de)(de)(de)(de)(de)范圍過(guo)于(yu)(yu)(yu)廣泛(fan)，應(ying)該對其(qi)(qi)使(shi)(shi)用(yong)(yong)(yong)方法(fa)(fa)及(ji)標準加以詳細規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，避免(mian)立法(fa)(fa)的(de)(de)(de)(de)(de)最終目的(de)(de)(de)(de)(de)在(zai)(zai)(zai)實(shi)(shi)(shi)際(ji)操(cao)(cao)(cao)作過(guo)程中難以落(luo)實(shi)(shi)(shi)。另外一個抽象的(de)(de)(de)(de)(de)表(biao)現(xian)則(ze)(ze)(ze)是(shi)在(zai)(zai)(zai)法(fa)(fa)律(lv)(lv)(lv)用(yong)(yong)(yong)語的(de)(de)(de)(de)(de)使(shi)(shi)用(yong)(yong)(yong)上(shang)賦予。《清(qing)潔生(sheng)(sheng)(sheng)產(chan)促進(jin)法(fa)(fa)》對農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)領域的(de)(de)(de)(de)(de)清(qing)潔生(sheng)(sheng)(sheng)產(chan)只(zhi)在(zai)(zai)(zai)第(di)22條(tiao)(tiao)作了(le)(le)(le)原則(ze)(ze)(ze)性(xing)(xing)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)，即“農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)生(sheng)(sheng)(sheng)產(chan)者應(ying)當科(ke)學(xue)(xue)地(di)使(shi)(shi)用(yong)(yong)(yong)化(hua)肥、農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)藥、農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)用(yong)(yong)(yong)薄(bo)膜和(he)飼料添加劑，改進(jin)種(zhong)(zhong)植和(he)養殖(zhi)技術，實(shi)(shi)(shi)現(xian)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)產(chan)品(pin)的(de)(de)(de)(de)(de)優質、無害和(he)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)生(sheng)(sheng)(sheng)產(chan)廢物(wu)的(de)(de)(de)(de)(de)資(zi)源(yuan)化(hua)，防(fang)(fang)(fang)止(zhi)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)環(huan)境(jing)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)。”2004年修訂的(de)(de)(de)(de)(de)《中華人(ren)民共和(he)國固(gu)體(ti)廢物(wu)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)環(huan)境(jing)防(fang)(fang)(fang)治(zhi)(zhi)(zhi)法(fa)(fa)》中把農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)膜污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)問(wen)題納入進(jin)來，第(di)19條(tiao)(tiao)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)：使(shi)(shi)用(yong)(yong)(yong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)用(yong)(yong)(yong)薄(bo)膜的(de)(de)(de)(de)(de)單位和(he)個人(ren)，應(ying)當采取回收利(li)用(yong)(yong)(yong)等(deng)(deng)措(cuo)施(shi)(shi)，防(fang)(fang)(fang)止(zhi)或者減少農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)用(yong)(yong)(yong)薄(bo)膜對環(huan)境(jing)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran);該法(fa)(fa)律(lv)(lv)(lv)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)雖(sui)涉及(ji)到(dao)(dao)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)用(yong)(yong)(yong)膜對農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)村環(huan)境(jing)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)，但規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)過(guo)于(yu)(yu)(yu)原則(ze)(ze)(ze)性(xing)(xing)，缺(que)(que)少相應(ying)的(de)(de)(de)(de)(de)配(pei)套細則(ze)(ze)(ze)實(shi)(shi)(shi)施(shi)(shi)，可操(cao)(cao)(cao)作性(xing)(xing)不(bu)強(qiang)。多項條(tiao)(tiao)款規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)都使(shi)(shi)用(yong)(yong)(yong)“合(he)理(li)施(shi)(shi)用(yong)(yong)(yong)化(hua)肥、農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)藥”、“采取措(cuo)施(shi)(shi)防(fang)(fang)(fang)治(zhi)(zhi)(zhi)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)面(mian)(mian)(mian)源(yuan)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)(ran)(ran)”、“依照有(you)關(guan)(guan)法(fa)(fa)律(lv)(lv)(lv)、行(xing)(xing)(xing)政法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)的(de)(de)(de)(de)(de)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)處(chu)(chu)罰(fa)”，怎樣衡量“合(he)理(li)”、如(ru)何采取措(cuo)施(shi)(shi)來防(fang)(fang)(fang)止(zhi)，法(fa)(fa)律(lv)(lv)(lv)、行(xing)(xing)(xing)政法(fa)(fa)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)的(de)(de)(de)(de)(de)相關(guan)(guan)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)是(shi)怎樣的(de)(de)(de)(de)(de)?則(ze)(ze)(ze)沒(mei)有(you)做出詳細的(de)(de)(de)(de)(de)規(gui)(gui)(gui)(gui)(gui)(gui)(gui)(gui)定(ding)(ding)(ding)(ding)(ding)。[8]
最后(hou)，針對(dui)農(nong)(nong)(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染(ran)(ran)(ran)的(de)(de)(de)(de)(de)法(fa)(fa)(fa)(fa)律(lv)責(ze)(ze)任(ren)認定(ding)模(mo)糊、不(bu)具(ju)體(ti)，處(chu)罰(fa)力度過(guo)輕(qing)，不(bu)具(ju)有(you)懲誡(jie)作用。我(wo)國農(nong)(nong)(nong)村環境破壞和(he)(he)(he)法(fa)(fa)(fa)(fa)律(lv)行(xing)為造成(cheng)的(de)(de)(de)(de)(de)危害(hai)和(he)(he)(he)損失已經(jing)達到(dao)(dao)十分嚴重(zhong)的(de)(de)(de)(de)(de)程度，因此，必須通(tong)過(guo)法(fa)(fa)(fa)(fa)律(lv)強制(zhi)手段追(zhui)究(jiu)相(xiang)應(ying)責(ze)(ze)任(ren)主體(ti)的(de)(de)(de)(de)(de)法(fa)(fa)(fa)(fa)律(lv)責(ze)(ze)任(ren)形(xing)式來防(fang)(fang)治(zhi)農(nong)(nong)(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染(ran)(ran)(ran)問題，保障生(sheng)態農(nong)(nong)(nong)業(ye)(ye)健康持續(xu)發展。目(mu)前的(de)(de)(de)(de)(de)法(fa)(fa)(fa)(fa)律(lv)雖(sui)對(dui)農(nong)(nong)(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染(ran)(ran)(ran)法(fa)(fa)(fa)(fa)律(lv)有(you)所涉及(ji)，卻少有(you)相(xiang)應(ying)的(de)(de)(de)(de)(de)法(fa)(fa)(fa)(fa)律(lv)責(ze)(ze)任(ren)規(gui)定(ding)，或(huo)(huo)者即使(shi)有(you)法(fa)(fa)(fa)(fa)津規(gui)定(ding)，但(dan)對(dui)法(fa)(fa)(fa)(fa)律(lv)責(ze)(ze)任(ren)承擔者的(de)(de)(de)(de)(de)責(ze)(ze)任(ren)認定(ding)及(ji)處(chu)罰(fa)上(shang)存在(zai)(zai)處(chu)罰(fa)責(ze)(ze)任(ren)模(mo)糊、不(bu)具(ju)體(ti)。如《水(shui)(shui)污(wu)(wu)染(ran)(ran)(ran)防(fang)(fang)治(zhi)法(fa)(fa)(fa)(fa)》第(di)48條(tiao)“指導(dao)(dao)農(nong)(nong)(nong)業(ye)(ye)生(sheng)產(chan)(chan)(chan)者、合理地(di)施用化(hua)肥和(he)(he)(he)農(nong)(nong)(nong)藥(yao)，控制(zhi)化(hua)肥和(he)(he)(he)農(nong)(nong)(nong)藥(yao)的(de)(de)(de)(de)(de)過(guo)量使(shi)用，防(fang)(fang)止造成(cheng)水(shui)(shui)污(wu)(wu)染(ran)(ran)(ran)”。《清潔生(sheng)產(chan)(chan)(chan)促進法(fa)(fa)(fa)(fa)》第(di)22條(tiao)“農(nong)(nong)(nong)業(ye)(ye)生(sheng)產(chan)(chan)(chan)者應(ying)當科學地(di)使(shi)用化(hua)肥、農(nong)(nong)(nong)藥(yao)農(nong)(nong)(nong)用薄膜和(he)(he)(he)飼料添加(jia)劑，改進種植和(he)(he)(he)養殖技術，實(shi)現(xian)農(nong)(nong)(nong)產(chan)(chan)(chan)品(pin)的(de)(de)(de)(de)(de)優質、無害(hai)和(he)(he)(he)農(nong)(nong)(nong)業(ye)(ye)生(sheng)產(chan)(chan)(chan)廢(fei)物的(de)(de)(de)(de)(de)資源(yuan)化(hua)，防(fang)(fang)止農(nong)(nong)(nong)業(ye)(ye)環境污(wu)(wu)染(ran)(ran)(ran)。禁(jin)(jin)止將毒、有(you)害(hai)廢(fei)物用作肥料或(huo)(huo)者用于造田”都涉及(ji)了農(nong)(nong)(nong)業(ye)(ye)污(wu)(wu)染(ran)(ran)(ran)，在(zai)(zai)法(fa)(fa)(fa)(fa)規(gui)中采用了“防(fang)(fang)止水(shui)(shui)污(wu)(wu)染(ran)(ran)(ran)”、“禁(jin)(jin)止”等措詞加(jia)以約束，卻沒有(you)明確規(gui)定(ding)污(wu)(wu)染(ran)(ran)(ran)者應(ying)該承擔的(de)(de)(de)(de)(de)法(fa)(fa)(fa)(fa)律(lv)責(ze)(ze)任(ren)，發生(sheng)農(nong)(nong)(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染(ran)(ran)(ran)時難(nan)以追(zhui)求相(xiang)關污(wu)(wu)染(ran)(ran)(ran)者的(de)(de)(de)(de)(de)法(fa)(fa)(fa)(fa)律(lv)責(ze)(ze)任(ren)。有(you)些(xie)規(gui)定(ding)的(de)(de)(de)(de)(de)處(chu)罰(fa)力度過(guo)輕(qing)，難(nan)以達到(dao)(dao)法(fa)(fa)(fa)(fa)律(lv)懲戒的(de)(de)(de)(de)(de)目(mu)的(de)(de)(de)(de)(de)，影響(xiang)法(fa)(fa)(fa)(fa)的(de)(de)(de)(de)(de)實(shi)效(xiao)。如《秸(jie)(jie)稈禁(jin)(jin)燒和(he)(he)(he)綜合利(li)用管(guan)理辦法(fa)(fa)(fa)(fa)》規(gui)定(ding)，對(dui)違反規(gui)定(ding)在(zai)(zai)秸(jie)(jie)稈禁(jin)(jin)燒區(qu)內(nei)焚燒秸(jie)(jie)稈的(de)(de)(de)(de)(de)，可(ke)以對(dui)直接責(ze)(ze)任(ren)人(ren)處(chu)以20元(yuan)以下罰(fa)款;造成(cheng)重(zhong)大(da)(da)大(da)(da)氣污(wu)(wu)染(ran)(ran)(ran)事故，導(dao)(dao)致公私財產(chan)(chan)(chan)重(zhong)大(da)(da)損失或(huo)(huo)者人(ren)身傷亡嚴重(zhong)后(hou)果的(de)(de)(de)(de)(de)，對(dui)有(you)關責(ze)(ze)任(ren)人(ren)員追(zhui)究(jiu)刑事責(ze)(ze)任(ren)。在(zai)(zai)現(xian)行(xing)經(jing)濟(ji)條(tiao)件下，20元(yuan)額度的(de)(de)(de)(de)(de)罰(fa)款很難(nan)起(qi)到(dao)(dao)威(wei)懾與(yu)警誡(jie)作用。
四、完(wan)善我(wo)國農(nong)業面源(yuan)污染防(fang)治(zhi)的(de)相(xiang)關立法
1、加強我(wo)國(guo)(guo)家農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)防(fang)治(zhi)的(de)(de)立(li)法(fa)(fa)建(jian)設，突出立(li)法(fa)(fa)重(zhong)(zhong)點，完善(shan)相(xiang)應法(fa)(fa)律(lv)法(fa)(fa)規(gui)(gui)，使其(qi)具有(you)配套性(xing)(xing)(xing)、系統(tong)(tong)性(xing)(xing)(xing)和(he)(he)可(ke)操作性(xing)(xing)(xing)。我(wo)國(guo)(guo)法(fa)(fa)律(lv)法(fa)(fa)規(gui)(gui)主(zhu)要(yao)針對工(gong)業(ye)(ye)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)，涉(she)及農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)的(de)(de)較少(shao)，早(zao)已(yi)不能(neng)滿足日益嚴重(zhong)(zhong)的(de)(de)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)問(wen)題(ti)。由(you)于農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)自身具有(you)的(de)(de)特點，農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)存(cun)在(zai)污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)面(mian)(mian)(mian)廣、分(fen)散、隱蔽(bi)、污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)后(hou)治(zhi)理困難等問(wen)題(ti)，我(wo)國(guo)(guo)在(zai)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源防(fang)治(zhi)領域(yu)(yu)，可(ke)以(yi)(yi)借鑒發達國(guo)(guo)家“以(yi)(yi)預(yu)防(fang)為(wei)(wei)(wei)主(zhu)、防(fang)治(zhi)結合”和(he)(he)“環(huan)境效益和(he)(he)經濟效益兼顧、優先考慮環(huan)境效益”為(wei)(wei)(wei)立(li)法(fa)(fa)指導思(si)路。筆者認為(wei)(wei)(wei)，以(yi)(yi)建(jian)立(li)生態農(nong)(nong)(nong)(nong)業(ye)(ye)為(wei)(wei)(wei)立(li)法(fa)(fa)重(zhong)(zhong)點，農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)防(fang)治(zhi)應以(yi)(yi)鼓勵機制與處(chu)罰機制相(xiang)結合，以(yi)(yi)鼓勵機制為(wei)(wei)(wei)主(zhu)要(yao)手段(duan)，通過生態補償等多種(zhong)經濟補償方式(shi)，達到(dao)防(fang)治(zhi)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)的(de)(de)效果(guo)，從根(gen)本上控制農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)的(de)(de)發生。在(zai)建(jian)立(li)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)防(fang)治(zhi)立(li)法(fa)(fa)時(shi)(shi)，體現(xian)“三性(xing)(xing)(xing)”立(li)法(fa)(fa)，即配套性(xing)(xing)(xing)、系統(tong)(tong)性(xing)(xing)(xing)和(he)(he)可(ke)操作性(xing)(xing)(xing)，完善(shan)一些污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)領域(yu)(yu)存(cun)在(zai)立(li)法(fa)(fa)的(de)(de)空白，比如對化(hua)肥、農(nong)(nong)(nong)(nong)藥、農(nong)(nong)(nong)(nong)膜管理的(de)(de)專門立(li)法(fa)(fa)以(yi)(yi)及一些有(you)利清潔生產的(de)(de)技術規(gui)(gui)范、化(hua)肥農(nong)(nong)(nong)(nong)藥的(de)(de)質量標準體系。在(zai)建(jian)立(li)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)防(fang)治(zhi)立(li)法(fa)(fa)，同時(shi)(shi)形成配套法(fa)(fa)律(lv)機制，制定相(xiang)關法(fa)(fa)規(gui)(gui)及實施(shi)細(xi)則，為(wei)(wei)(wei)防(fang)治(zhi)農(nong)(nong)(nong)(nong)業(ye)(ye)面(mian)(mian)(mian)源污(wu)(wu)(wu)(wu)染(ran)(ran)(ran)(ran)提(ti)供有(you)效的(de)(de)法(fa)(fa)律(lv)依據。
2、建立(li)(li)農(nong)業(ye)(ye)生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)中(zhong)(zhong)的(de)(de)環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)。1979年(nian)(nian)我國頒布(bu)的(de)(de)《中(zhong)(zhong)華(hua)人(ren)民(min)(min)共和國環(huan)(huan)境(jing)(jing)(jing)保(bao)護(hu)法(試行)》正式確(que)立(li)(li)了(le)環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)，2002年(nian)(nian)通(tong)過(guo)(guo)(guo)的(de)(de)《中(zhong)(zhong)華(hua)人(ren)民(min)(min)共和國環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價法》則進(jin)(jin)(jin)一步(bu)確(que)立(li)(li)了(le)環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)。目(mu)前，我國環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)的(de)(de)適用對(dui)(dui)象主要是(shi)兩大類：一是(shi)建設項目(mu);二是(shi)規(gui)劃。農(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染方(fang)面并未納入環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價范圍之內(nei)，環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)對(dui)(dui)環(huan)(huan)境(jing)(jing)(jing)污(wu)(wu)染和破(po)壞的(de)(de)預防功(gong)能、對(dui)(dui)經(jing)濟社會發(fa)展與環(huan)(huan)境(jing)(jing)(jing)保(bao)護(hu)的(de)(de)協調功(gong)能以(yi)及對(dui)(dui)決(jue)策科學化和民(min)(min)主化的(de)(de)促進(jin)(jin)(jin)功(gong)能在(zai)一定(ding)的(de)(de)條件(jian)下(xia)同樣可(ke)以(yi)在(zai)農(nong)業(ye)(ye)環(huan)(huan)境(jing)(jing)(jing)和農(nong)村環(huan)(huan)境(jing)(jing)(jing)保(bao)護(hu)中(zhong)(zhong)發(fa)揮作用。《中(zhong)(zhong)華(hua)人(ren)民(min)(min)共和國農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)質(zhi)量安(an)全(quan)法》，建立(li)(li)了(le)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)的(de)(de)質(zhi)量安(an)全(quan)風(feng)險(xian)(xian)評(ping)(ping)估(gu)制(zhi)(zhi)(zhi)度(du)，主管(guan)部(bu)門設立(li)(li)的(de)(de)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)質(zhi)量安(an)全(quan)風(feng)險(xian)(xian)評(ping)(ping)估(gu)專家(jia)委員會對(dui)(dui)可(ke)能影(ying)(ying)響(xiang)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)質(zhi)量安(an)全(quan)的(de)(de)潛(qian)在(zai)危害(hai)進(jin)(jin)(jin)行風(feng)險(xian)(xian)分析和評(ping)(ping)估(gu)，該(gai)法對(dui)(dui)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)的(de)(de)產(chan)(chan)(chan)地(di)和生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)中(zhong)(zhong)的(de)(de)投(tou)入品(pin)(pin)(pin)(pin)也作出(chu)嚴格限制(zhi)(zhi)(zhi)，提出(chu)應(ying)當建立(li)(li)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)記(ji)錄。其評(ping)(ping)估(gu)的(de)(de)目(mu)標是(shi)確(que)保(bao)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)的(de)(de)質(zhi)量安(an)全(quan)，卻未涉(she)及農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)中(zhong)(zhong)的(de)(de)面源(yuan)污(wu)(wu)染對(dui)(dui)環(huan)(huan)境(jing)(jing)(jing)的(de)(de)影(ying)(ying)響(xiang)，并且(qie)其沒有針對(dui)(dui)整個生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)的(de)(de)環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價作制(zhi)(zhi)(zhi)度(du)化、系統化的(de)(de)規(gui)定(ding)。筆(bi)者(zhe)認為，在(zai)農(nong)業(ye)(ye)生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)中(zhong)(zhong)，應(ying)確(que)立(li)(li)針對(dui)(dui)農(nong)業(ye)(ye)生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)中(zhong)(zhong)的(de)(de)環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)。由(you)于農(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染可(ke)直接導致農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)質(zhi)量下(xia)降，危害(hai)人(ren)民(min)(min)身體健康。建立(li)(li)農(nong)業(ye)(ye)生(sheng)(sheng)(sheng)(sheng)(sheng)產(chan)(chan)(chan)過(guo)(guo)(guo)程(cheng)(cheng)中(zhong)(zhong)的(de)(de)環(huan)(huan)境(jing)(jing)(jing)影(ying)(ying)響(xiang)評(ping)(ping)價制(zhi)(zhi)(zhi)度(du)，不但(dan)確(que)保(bao)了(le)農(nong)產(chan)(chan)(chan)品(pin)(pin)(pin)(pin)質(zhi)量，可(ke)以(yi)從源(yuan)頭預防農(nong)業(ye)(ye)面源(yuan)污(wu)(wu)染的(de)(de)發(fa)生(sheng)(sheng)(sheng)(sheng)(sheng)。
3、完善農(nong)業(ye)面(mian)(mian)源污(wu)染(ran)的(de)法(fa)(fa)律(lv)(lv)(lv)責(ze)任(ren)(ren)。在(zai)農(nong)業(ye)面(mian)(mian)源污(wu)染(ran)防(fang)治(zhi)(zhi)(zhi)的(de)法(fa)(fa)律(lv)(lv)(lv)機制運行過程中(zhong)，完善法(fa)(fa)律(lv)(lv)(lv)責(ze)任(ren)(ren)是保(bao)證法(fa)(fa)律(lv)(lv)(lv)運行中(zhong)的(de)必需環節，是法(fa)(fa)律(lv)(lv)(lv)實(shi)(shi)施(shi)的(de)保(bao)障機制。我(wo)國防(fang)治(zhi)(zhi)(zhi)面(mian)(mian)源污(wu)染(ran)的(de)相(xiang)關(guan)(guan)(guan)法(fa)(fa)律(lv)(lv)(lv)責(ze)任(ren)(ren)較少，目(mu)前(qian)的(de)農(nong)業(ye)面(mian)(mian)源污(wu)染(ran)法(fa)(fa)律(lv)(lv)(lv)責(ze)任(ren)(ren)規定，僅僅限于義(yi)務性條款，原則性過強(qiang)，很多(duo)(duo)防(fang)治(zhi)(zhi)(zhi)面(mian)(mian)源污(wu)染(ran)的(de)法(fa)(fa)律(lv)(lv)(lv)法(fa)(fa)規中(zhong)都沒有設(she)(she)定相(xiang)關(guan)(guan)(guan)的(de)責(ze)任(ren)(ren)規定。即使有些法(fa)(fa)律(lv)(lv)(lv)法(fa)(fa)規中(zhong)設(she)(she)定了防(fang)治(zhi)(zhi)(zhi)面(mian)(mian)源污(wu)染(ran)的(de)相(xiang)關(guan)(guan)(guan)責(ze)任(ren)(ren)規定，大多(duo)(duo)沒有明確問(wen)責(ze)的(de)主管部(bu)門，導致主管部(bu)門之間有利益(yi)爭(zheng)著(zhu)問(wen)責(ze)，沒有利益(yi)則相(xiang)互推諉(wei)、扯皮。目(mu)前(qian)法(fa)(fa)律(lv)(lv)(lv)責(ze)任(ren)(ren)針對性不強(qiang)，處罰力度不大，起(qi)不到懲戒作用，法(fa)(fa)律(lv)(lv)(lv)責(ze)任(ren)(ren)方面(mian)(mian)不能(neng)得(de)到有效支持與保(bao)障作用，未能(neng)達(da)到法(fa)(fa)實(shi)(shi)施(shi)最終目(mu)的(de)而(er)且。
因此，在今后的(de)農業面源污染防治立法(fa)(fa)(fa)中，從行(xing)政責任(ren)、民(min)事責任(ren)、刑(xing)事責任(ren)三方面都(dou)要(yao)加(jia)以體(ti)現，使(shi)其有(you)(you)機的(de)協(xie)調的(de)結合起來(lai)，并在法(fa)(fa)(fa)律(lv)責任(ren)執行(xing)過(guo)程中要(yao)有(you)(you)具體(ti)的(de)執行(xing)標準，細(xi)化、量化，使(shi)執行(xing)部門有(you)(you)法(fa)(fa)(fa)可依，執法(fa)(fa)(fa)時有(you)(you)法(fa)(fa)(fa)可循。
4、明確農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)的(de)(de)(de)(de)主(zhu)(zhu)管(guan)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)，科(ke)學(xue)合理劃分(fen)(fen)各(ge)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)的(de)(de)(de)(de)職(zhi)(zhi)責(ze)權(quan)限。由于(yu)(yu)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)涉及到農(nong)(nong)(nong)(nong)、林(lin)、牧、漁(yu)等多(duo)個部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)，在(zai)污(wu)染(ran)(ran)(ran)防治的(de)(de)(de)(de)過程(cheng)中必(bi)然出(chu)現(xian)相(xiang)關職(zhi)(zhi)能(neng)(neng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)職(zhi)(zhi)責(ze)交(jiao)叉與重(zhong)疊的(de)(de)(de)(de)現(xian)象(xiang)，這(zhe)(zhe)種(zhong)(zhong)現(xian)象(xiang)會造成兩種(zhong)(zhong)結果，一(yi)(yi)種(zhong)(zhong)是(shi)各(ge)職(zhi)(zhi)能(neng)(neng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)爭相(xiang)負責(ze)，產(chan)(chan)(chan)生(sheng)(sheng)權(quan)力沖突(tu)，另一(yi)(yi)種(zhong)(zhong)是(shi)各(ge)職(zhi)(zhi)能(neng)(neng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)互(hu)相(xiang)推委，產(chan)(chan)(chan)生(sheng)(sheng)權(quan)力真(zhen)空(kong)(kong)，這(zhe)(zhe)兩種(zhong)(zhong)結果都(dou)不(bu)(bu)(bu)利于(yu)(yu)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)的(de)(de)(de)(de)防治。農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)的(de)(de)(de)(de)防治需要(yao)多(duo)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)的(de)(de)(de)(de)相(xiang)互(hu)合作(zuo)與配合，這(zhe)(zhe)種(zhong)(zhong)合作(zuo)不(bu)(bu)(bu)僅要(yao)建立(li)在(zai)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)行政(zheng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)和環境保護行政(zheng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)之(zhi)間(jian)，還要(yao)建立(li)在(zai)它們與各(ge)自相(xiang)關方之(zhi)間(jian)，只有(you)(you)這(zhe)(zhe)樣才能(neng)(neng)實現(xian)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)的(de)(de)(de)(de)有(you)(you)效控制。農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)部(bu)(bu)(bu)(bu)(bu)作(zuo)為國家(jia)的(de)(de)(de)(de)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)行政(zheng)主(zhu)(zhu)管(guan)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men),長(chang)期(qi)以來一(yi)(yi)直(zhi)主(zhu)(zhu)管(guan)農(nong)(nong)(nong)(nong)牧業(ye)(ye)(ye)(ye)(ye)的(de)(de)(de)(de)生(sheng)(sheng)產(chan)(chan)(chan)以及農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)投入品的(de)(de)(de)(de)生(sheng)(sheng)產(chan)(chan)(chan)和使用管(guan)理,雖然農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)發展的(de)(de)(de)(de)目標已經(jing)開(kai)始向“高(gao)產(chan)(chan)(chan)、優質(zhi)、高(gao)效、生(sheng)(sheng)態(tai)、安全”方面(mian)轉移,但是(shi)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)在(zai)促進產(chan)(chan)(chan)業(ye)(ye)(ye)(ye)(ye)發展和保護環境這(zhe)(zhe)兩個目標之(zhi)間(jian),往往傾向于(yu)(yu)前者。而國家(jia)環保部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)對(dui)于(yu)(yu)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)污(wu)染(ran)(ran)(ran)問題,又起不(bu)(bu)(bu)到直(zhi)接的(de)(de)(de)(de)控制作(zuo)用。這(zhe)(zhe)就導致農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)污(wu)染(ran)(ran)(ran)管(guan)理處于(yu)(yu)一(yi)(yi)種(zhong)(zhong)真(zhen)空(kong)(kong)狀態(tai)。為改變這(zhe)(zhe)種(zhong)(zhong)誰都(dou)可(ke)以管(guan),誰都(dou)可(ke)以不(bu)(bu)(bu)管(guan)的(de)(de)(de)(de)局面(mian),立(li)法(fa)應明確農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)為農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)防治的(de)(de)(de)(de)主(zhu)(zhu)管(guan)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men),負有(you)(you)防治農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)污(wu)染(ran)(ran)(ran)的(de)(de)(de)(de)法(fa)律責(ze)任(ren),其(qi)(qi)他部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)有(you)(you)義(yi)務配合其(qi)(qi)履(lv)行職(zhi)(zhi)責(ze)。[9]因此，我國的(de)(de)(de)(de)相(xiang)關立(li)法(fa)應按一(yi)(yi)個統一(yi)(yi)的(de)(de)(de)(de)標準對(dui)現(xian)有(you)(you)職(zhi)(zhi)能(neng)(neng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)的(de)(de)(de)(de)職(zhi)(zhi)責(ze)進行劃分(fen)(fen)，劃分(fen)(fen)其(qi)(qi)職(zhi)(zhi)能(neng)(neng)時分(fen)(fen)充(chong)分(fen)(fen)考慮到農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)面(mian)源(yuan)(yuan)污(wu)染(ran)(ran)(ran)源(yuan)(yuan)具有(you)(you)復雜性、廣泛性，通過立(li)法(fa)科(ke)學(xue)合理的(de)(de)(de)(de)界定出(chu)各(ge)職(zhi)(zhi)能(neng)(neng)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)的(de)(de)(de)(de)職(zhi)(zhi)責(ze)，各(ge)部(bu)(bu)(bu)(bu)(bu)門(men)(men)(men)依法(fa)律賦予的(de)(de)(de)(de)職(zhi)(zhi)責(ze)行事,職(zhi)(zhi)責(ze)明確,權(quan)力和責(ze)任(ren)平衡。
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