《道路交(jiao)通(tong)(tong)安全法實施條(tiao)例》確定(ding)(ding)了交(jiao)通(tong)(tong)影(ying)(ying)(ying)(ying)響(xiang)評價(jia)(jia)(jia)(jia)制(zhi)度，但(dan)并(bing)沒有確定(ding)(ding)主管部(bu)(bu)(bu)(bu)門(men)，而(er)只是籠統地說“縣級以上地方(fang)各(ge)級人民政府應(ying)當(dang)……組(zu)織有關部(bu)(bu)(bu)(bu)門(men)對城市建設項目(mu)進行交(jiao)通(tong)(tong)影(ying)(ying)(ying)(ying)響(xiang)評價(jia)(jia)(jia)(jia)”，并(bing)沒有確定(ding)(ding)牽頭單(dan)位(wei)。如前分析，由于交(jiao)通(tong)(tong)影(ying)(ying)(ying)(ying)響(xiang)評價(jia)(jia)(jia)(jia)與環境(jing)影(ying)(ying)(ying)(ying)響(xiang)評價(jia)(jia)(jia)(jia)是平行的(de)兩種(zhong)制(zhi)度，因此(ci)，如果說交(jiao)通(tong)(tong)影(ying)(ying)(ying)(ying)響(xiang)評價(jia)(jia)(jia)(jia)的(de)主管部(bu)(bu)(bu)(bu)門(men)不(bu)是環境(jing)保護部(bu)(bu)(bu)(bu)門(men)，環境(jing)保護部(bu)(bu)(bu)(bu)門(men)沒有異議(yi)受的(de)話，交(jiao)通(tong)(tong)影(ying)(ying)(ying)(ying)響(xiang)評價(jia)(jia)(jia)(jia)的(de)主管部(bu)(bu)(bu)(bu)門(men)是否是公安機關交(jiao)通(tong)(tong)主管部(bu)(bu)(bu)(bu)門(men)則(ze)會引起(qi)較大的(de)爭議(yi)。

從(cong)國內交(jiao)(jiao)通(tong)影(ying)響(xiang)評價(jia)(jia)的實踐情況來看，由于交(jiao)(jiao)通(tong)影(ying)響(xiang)評價(jia)(jia)還(huan)沒有(you)(you)從(cong)立(li)法角度予(yu)以確(que)認，交(jiao)(jiao)通(tong)影(ying)響(xiang)評價(jia)(jia)目前游離于規劃部門與公安機關交(jiao)(jiao)通(tong)管(guan)(guan)理部門之間，有(you)(you)的城市由公安機關交(jiao)(jiao)通(tong)管(guan)(guan)理部門負責，如西安市公安局局長董軍今年在西安市十三(san)屆(jie)人大常委會第十五次會議提出：“交(jiao)(jiao)管(guan)(guan)部門將(jiang)對新(xin)建(jian)的大型建(jian)筑(zhu)配建(jian)停(ting)車場進行審(shen)批，逐步對未(wei)配建(jian)停(ting)車場的商業建(jian)筑(zhu)不予(yu)審(shen)批，同時建(jian)立(li)大型建(jian)筑(zhu)交(jiao)(jiao)通(tong)影(ying)響(xiang)評價(jia)(jia)體系”。

在(zai)由(you)江蘇(su)省(sheng)(sheng)公安部(bu)門(men)起草(cao)的(de)(de)(de)(de)《江蘇(su)省(sheng)(sheng)道(dao)路交(jiao)(jiao)通(tong)(tong)安全(quan)條例》草(cao)案中肯定(ding)(ding)(ding)了《道(dao)路交(jiao)(jiao)通(tong)(tong)安全(quan)法實施條例》確(que)定(ding)(ding)(ding)的(de)(de)(de)(de)交(jiao)(jiao)通(tong)(tong)影(ying)響(xiang)評價(jia)(jia)制度(du)規(gui)定(ding)(ding)(ding)，并嘗試解決交(jiao)(jiao)通(tong)(tong)影(ying)響(xiang)評價(jia)(jia)主(zhu)管(guan)(guan)部(bu)門(men)的(de)(de)(de)(de)問(wen)題(ti)。但卻(que)規(gui)定(ding)(ding)(ding)“由(you)公安機關交(jiao)(jiao)通(tong)(tong)管(guan)(guan)理會同有關部(bu)門(men)組織進行交(jiao)(jiao)通(tong)(tong)影(ying)響(xiang)評價(jia)(jia)”，這種規(gui)定(ding)(ding)(ding)，明(ming)確(que)將(jiang)規(gui)劃(hua)(hua)部(bu)門(men)排除(chu)在(zai)交(jiao)(jiao)通(tong)(tong)影(ying)響(xiang)評價(jia)(jia)之外(wai)(wai)!該(gai)草(cao)案的(de)(de)(de)(de)征求(qiu)意見稿公布(bu)后(hou)，對該(gai)規(gui)定(ding)(ding)(ding)引起了極大爭議，核心問(wen)題(ti)在(zai)于(yu)這樣規(gui)定(ding)(ding)(ding)將(jiang)動(dong)搖城(cheng)市規(gui)劃(hua)(hua)部(bu)門(men)的(de)(de)(de)(de)“龍頭(tou)”地位(wei)。而城(cheng)市交(jiao)(jiao)通(tong)(tong)問(wen)題(ti)和城(cheng)市規(gui)劃(hua)(hua)密(mi)不可分，將(jiang)規(gui)劃(hua)(hua)部(bu)門(men)排除(chu)在(zai)交(jiao)(jiao)通(tong)(tong)影(ying)響(xiang)評價(jia)(jia)主(zhu)管(guan)(guan)部(bu)門(men)之外(wai)(wai)，對交(jiao)(jiao)通(tong)(tong)問(wen)題(ti)的(de)(de)(de)(de)解決必將(jiang)出現頭(tou)痛醫(yi)頭(tou)、腳痛醫(yi)腳的(de)(de)(de)(de)模式，而難(nan)以(yi)從整(zheng)個城(cheng)市的(de)(de)(de)(de)綜合協調角度(du)予以(yi)解決。

因(yin)此，《江(jiang)蘇省道路(lu)(lu)(lu)交通(tong)安(an)全(quan)條例》在最后江(jiang)蘇省人大(da)常(chang)委通(tong)過時(shi)被修(xiu)改為 “規(gui)劃部門(men)(men)在審批城市道路(lu)(lu)(lu)沿(yan)線的(de)大(da)型建筑(zhu)以(yi)及其他重(zhong)大(da)建設項目時(shi)，應當(dang)會同公(gong)(gong)安(an)機關(guan)交通(tong)管(guan)理(li)等部門(men)(men)組織進行交通(tong)影(ying)響(xiang)(xiang)評(ping)價。經評(ping)價不(bu)符合城市道路(lu)(lu)(lu)交通(tong)安(an)全(quan)管(guan)理(li)規(gui)劃的(de)，應當(dang)進行調整，無(wu)法調整的(de)，不(bu)予批準。在道路(lu)(lu)(lu)沿(yan)線建設加油(you)站(zhan)、停車場等公(gong)(gong)共服務設施的(de)，規(gui)劃部門(men)(men)應當(dang)事(shi)先征求公(gong)(gong)安(an)機關(guan)交通(tong)管(guan)理(li)部門(men)(men)的(de)意(yi)見，公(gong)(gong)安(an)機關(guan)交通(tong)管(guan)理(li)部門(men)(men)應當(dang)出(chu)具(ju)書面意(yi)見。”需要(yao)注意(yi)的(de)是，這樣規(gui)定雖然肯定了規(gui)劃部門(men)(men)在交通(tong)影(ying)響(xiang)(xiang)評(ping)價制度中的(de)牽頭(tou)地位，但依(yi)然強調了公(gong)(gong)安(an)機關(guan)交通(tong)管(guan)理(li)在交通(tong)影(ying)響(xiang)(xiang)評(ping)價中的(de)重(zhong)要(yao)作用。

本文認為(wei)，《江蘇(su)省道(dao)路(lu)交(jiao)(jiao)(jiao)通(tong)安全條(tiao)例》對草案的(de)(de)修(xiu)改(gai)是(shi)科學的(de)(de)，也是(shi)符合城(cheng)市管(guan)理(li)的(de)(de)實際情況的(de)(de)。交(jiao)(jiao)(jiao)通(tong)影響(xiang)評價(jia)的(de)(de)主管(guan)部門應當是(shi)城(cheng)市規劃主管(guan)部門，而不是(shi)公安機關(guan)交(jiao)(jiao)(jiao)通(tong)主管(guan)部門，但(dan)公安機關(guan)交(jiao)(jiao)(jiao)通(tong)主管(guan)部門應當是(shi)交(jiao)(jiao)(jiao)通(tong)影響(xiang)評價(jia)中一個極為(wei)重要(yao)的(de)(de)參與(yu)部門。

但(dan)是，由于城市(shi)規劃的(de)復雜性，其他相關(guan)部(bu)(bu)門(men)對城市(shi)規劃部(bu)(bu)門(men)在城市(shi)建(jian)設中的(de)“龍頭”地(di)位認識(shi)不(bu)足(zu)，不(bu)僅(jin)沒有(you)確立規劃部(bu)(bu)門(men)在交(jiao)通影響評(ping)價中的(de)核(he)(he)心地(di)位，甚(shen)至有(you)的(de)地(di)方(fang)城市(shi)開始立法(fa)確定(ding)由交(jiao)管部(bu)(bu)門(men)負責!如《北京(jing)市(shi)外商投資(zi)項(xiang)目(mu)核(he)(he)準暫行(xing)實施辦法(fa)(征求意(yi)見稿(gao))》第八條(tiao)規定(ding)“報送項(xiang)目(mu)申請報告(gao)應(ying)附以下文(wen)件：(七)北京(jing)市(shi)大型公建(jian)和城市(shi)交(jiao)通設施項(xiang)目(mu)，應(ying)附市(shi)交(jiao)通行(xing)政主管部(bu)(bu)門(men)出具的(de)交(jiao)通影響評(ping)價意(yi)見;”

從(cong)立法(fa)的(de)(de)過(guo)程(cheng)(cheng)與實踐(jian)可(ke)(ke)以看出，對于(yu)交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)的(de)(de)主管(guan)(guan)(guan)(guan)部(bu)(bu)門(men)(men)(men)問題認識還不統(tong)一，并(bing)且實踐(jian)中公(gong)安(an)(an)機(ji)關交(jiao)(jiao)(jiao)通(tong)管(guan)(guan)(guan)(guan)理(li)(li)部(bu)(bu)門(men)(men)(men)也開始了對交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)主管(guan)(guan)(guan)(guan)權之爭。如果(guo)(guo)不盡快(kuai)確定規(gui)劃(hua)行政主管(guan)(guan)(guan)(guan)部(bu)(bu)門(men)(men)(men)在(zai)交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)中的(de)(de)牽頭地(di)(di)位，有(you)可(ke)(ke)能(neng)出現規(gui)劃(hua)部(bu)(bu)門(men)(men)(men)與公(gong)安(an)(an)機(ji)關交(jiao)(jiao)(jiao)通(tong)管(guan)(guan)(guan)(guan)理(li)(li)部(bu)(bu)門(men)(men)(men)就交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)的(de)(de)管(guan)(guan)(guan)(guan)理(li)(li)權上出現爭執(zhi)。而(er)交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)在(zai)城市規(gui)劃(hua)管(guan)(guan)(guan)(guan)理(li)(li)中處于(yu)極為重要的(de)(de)基(ji)礎性地(di)(di)位，一旦(dan)由(you)(you)公(gong)安(an)(an)機(ji)關交(jiao)(jiao)(jiao)通(tong)管(guan)(guan)(guan)(guan)理(li)(li)部(bu)(bu)門(men)(men)(men)成為交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)的(de)(de)主管(guan)(guan)(guan)(guan)部(bu)(bu)門(men)(men)(men)，尤其(qi)是(shi)大(da)型建(jian)筑以及其(qi)它重大(da)建(jian)設項(xiang)目需要交(jiao)(jiao)(jiao)管(guan)(guan)(guan)(guan)部(bu)(bu)門(men)(men)(men)進行審批(pi)的(de)(de)話，必將(jiang)會嚴重影響規(gui)劃(hua)部(bu)(bu)門(men)(men)(men)在(zai)城市建(jian)設中的(de)(de)“龍頭”作(zuo)用。不能(neng)排除在(zai)將(jiang)來省公(gong)安(an)(an)廳(ting)有(you)可(ke)(ke)能(neng)因(yin)此以“暢(chang)通(tong)工程(cheng)(cheng)”或“道路交(jiao)(jiao)(jiao)通(tong)安(an)(an)全”的(de)(de)名義，發文(wen)要求各(ge)公(gong)安(an)(an)機(ji)關交(jiao)(jiao)(jiao)通(tong)管(guan)(guan)(guan)(guan)理(li)(li)部(bu)(bu)門(men)(men)(men)加強對交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)的(de)(de)控制。在(zai)具體操作(zuo)中，許多地(di)(di)方仍然(ran)由(you)(you)公(gong)安(an)(an)機(ji)關交(jiao)(jiao)(jiao)通(tong)管(guan)(guan)(guan)(guan)理(li)(li)負責(ze)(ze)交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)，規(gui)劃(hua)部(bu)(bu)門(men)(men)(men)并(bing)沒有(you)意識到這是(shi)自己(ji)的(de)(de)法(fa)定職(zhi)責(ze)(ze)，也沒有(you)對交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)引(yin)起足夠的(de)(de)重視(shi)。如果(guo)(guo)長期不將(jiang)其(qi)納入城市規(gui)劃(hua)管(guan)(guan)(guan)(guan)理(li)(li)程(cheng)(cheng)序，不排除將(jiang)來可(ke)(ke)能(neng)由(you)(you)公(gong)安(an)(an)機(ji)關交(jiao)(jiao)(jiao)通(tong)管(guan)(guan)(guan)(guan)理(li)(li)負責(ze)(ze)交(jiao)(jiao)(jiao)通(tong)影響評(ping)價(jia)的(de)(de)局面(mian)。