摘要
我国的《领海及毗连区法》第2条规定：＂领海基线向陆地一侧的水域为中华人民共和国的内水＂。我国的《海域使用管理法》第2条规定：＂本法所称内水,是指中华人民共和国领海基线向陆地一侧至海岸线的海域＂。＂两法＂对＂内水＂的定义有水域和海域之分,因此容易引起解读上的分歧或执法上的模糊。分歧之一是,根据《海域使用管理法》,从领海基线向陆地一侧至海岸线部分,是否包括河口、海湾、滩涂等＂内水＂;分歧之二是,根据《领海及毗连区法》,是否认定一部分＂内水＂即内海是由直线基线法所致。为什么＂两法＂对＂内水＂有水域和海域两种不同的定义？其一,＂两法＂针对的客体不同,《领海及毗连区法》针对的客体是国际或国外,该法的主体是国家主权;《海域使用管理法》针对的客体是国内海域,该法的主体是国内海域的使用管理。《联合国海洋法公约》（以下称《公约》）规定＂领海基线向陆一面的水域构成国家‘内水’的一部分＂,那么另一部分＂内水＂就是正常基线向陆一侧的水域,包括江、河、海湾等,它完全置于国家领土主权之下。其二,用专业术语上的海岸线替代《海域使用管理法》中的海岸线会出现矛盾。专业术语上同指水陆分界线的有海岸线和＂干出线＂两种。前者是涨潮时离岸最近的线,后者是退潮时离岸最远的线,依据《公约》规定：＂测算领海宽度的正常基线是沿海国官方承认的大比例尺海图所标明的沿岸低潮线,即退潮时海水离岸最远的那条线＂,所以低潮线更加符合《公约》和《海域使用管理法》中海岸线的定义,怎样理解海岸线才不会出现矛盾呢？本文认为,完全意义上的海岸线是大潮高潮线与低潮线之间的一条带状面,这个面有时被水淹没,有时出露,且宽窄不等,陡缓不一。当解读了《公约》的有关条款后,就不难理解领海基线向陆地一侧至海岸线的水域中有盐度为0.05~30和30~36范围的＂内水＂存在,盐度范围为0.05~30的＂内水＂是指按正常基线法划定领海基线而出现的＂内水＂,包括水域和海域;盐度范围为30~36的＂内水＂是指按正常基线与按直线基线法划定的领海基线之间出现的＂内水＂,即内海。它们在法律层面上有主从之分,不能混淆。
Article 2 of the Law of the PRC on the Territorial Sea and the Contiguous Zone,hereinafter referred to as Law on the Territorial Sea and the Contiguous Zone,is ＂The waters on the landward side of the territorial sea baselines of the PRC constitute its internal waters.＂ Article 2 of the Law of the PRC on the Administration of the Use of Sea Areas,hereinafter referred to as Law on the Administration of the Use of Sea Areas,is ＂The inland waters in this Law refer to the sea areas extending from the landward side of the territorial seas baselines of the PRC to the coastline.＂ The former defines the inland waters as water areas while the latter defines it as sea areas,resulting in discrepancies between the two definitions of internal or inland waters.One discrepancy is that whether the areas extending from the landward side of the territorial sea baselines to the coastline of mean high water level of spring tide including inland waters such as the estuaries,bays and beaches should be managed as sea areas.The other is that since Law on the Territorial Sea and the Contiguous Zone prescribes that the waters on the landward side of the territorial sea baselines constitute the internal waters,whether it means that part of the inland waters,namely inland sea,are drawn by the straight baseline method.Why there are two different definitions,the water areas and the sea areas,of the inland waters in the two laws？ First,the two laws are enacted for different objects.Law on the Territorial Sea and the Contiguous Zone is enacted for international or foreign objects,Article 1 of which is ＂This Law is enacted for the PRC to exercise its sovereignty over its territorial sea and the control over its contiguous zone,and to safeguard its national security and its maritime rights and interests.＂ Its subject is the state sovereignty.Therefore,in this law the waters on the landward side of the territorial sea baselines constitute the internal waters of the PRC.Law on the Administration of the Use of Sea Areas is enacted for domestic sea areas,Article 1 of which is ＂This Law is enacted for the purpose of strengthening the administration of the use of sea areas,safeguarding the state ownership of the sea areas and the legitimate rights and interests of the sea area users,promoting rational development and sustainable utilization of the sea areas.＂ Its subject is the administration of the use of domestic sea areas.Therefore,in this law the inland waters refer to the sea areas extending from the landward side of the territorial seas of the PRC to the coastline.United Nations Convention on the Law of the Sea,hereinafter referred to as Convention,prescribes that ＂The waters on the landward side of the territorial sea baselines constitute a part of the inland waters of the country＂,then the other part of the inland waters are the areas on the landward side of the normal baselines,including rivers,bays,inlets,and so on,which are entirely under the territorial sovereignty of a country.Second,the contradictions would appear if the word ＂coastline＂ in Law on the Administration of the Use of Sea Areas is substituted by the terminology ＂coastline＂.＂Coastline＂ and ＂low water line＂ are two professional terms refer to the boundaries between land and sea： The former refers to the nearest offshore water line at high tide,and the latter is the furthest offshore water line at low tide.Convention prescribes that the normal baseline for measuring the breadth of the territorial sea is the low water line along the coast as marked on large-scale charts officially recognized by the coastal state,namely the furthest offshore water line at low tide.Therefore,only the low water line can be in accordance with the ＂coastline＂ defined in Convention and Law on the Administration of the Use of Sea Areas.Then how to avoid the contradiction when interpreting the ＂coastline＂？ The author thinks that coastline in real sense is a strip between the water line of high tide and low tide,which is land,sometimes covered by water varying in width and steepness.It would be much easier to understand the discrepancies between the two mentioned laws when knowing that there are inland waters on the landward side of the territorial sea baselines,the salinity of which is within the scope of 0.05 to 30 and 30 to 36.The former are the inland waters determined by the normal baseline method which include water areas and sea areas,and the latter are the inland waters,namely inland seas which are between the normal baselines and the straight baselines.They cannot be confused because they have a master-slave distinction at the legal level.
出处
《海洋学研究》
2010年第2期36-44,共9页
Journal of Marine Sciences
关键词
领海基线
正常基线法
直线基线法
“内水”
海域
海岸线
baseline of the territorial sea
normal baseline method
straight baseline method
＂interior water＂
sea area
coastline
作者简介
钱迈（1958-），男，浙江杭州市人，工程师，主要从事河海测绘与海岸线研究工作。
