控制大气污染背景下北京市减少煤炭消费的政策经验与启示
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摘要
控制大气污染背景下,减少煤炭消费已成为我国各大城市的一项重要的公共政策。从1998年开始,北京市减少煤炭消费政策已经持续实施近20年,为其他城市提供了丰富的政策经验。文章对北京市减煤政策进行了系统梳理,对政策效果进行了初步评价。研究发现,工业用煤的减少在煤炭消费总量下降中具有决定性作用,占同期煤炭消费减少总量的71.7%。尽管人均生活煤耗量下降了43.5%,但从绝对量来看,生活领域在北京市煤炭消费总量减少中的贡献有限。从北京市的政策经验来看,与城市发展相适应、持续推动、资金保障、有力的政策执行机制是减煤政策成功的基本要素。城市在开展减煤行动时,应协调好减煤政策与城市定位、产业发展之间的关系,在城市发展中长期坚持。为减少资金压力,保障减煤政策顺利开展,适宜分阶段、分区域逐步开展。
In the background of controlling air pollution, reducing coal consumption has become an important public policy in China. Since 1998, the policy of reducing coal consumption has been carried out for nearly 20 years in Beijing, it provides much experience for other cities. In this paper, the policies of reducing coal consumption had been teased out systematically and then its effects had been evaluated preliminaryily in Beijing. The study found that reducing the coal used in the industry had a decisive role on coal consumption project, which accounted for 71.7% of the total coal consumption reduced during this period. Although the amount of per capita on living coal consumption had dropped by 43.5%, life's contribution, to the total reduce coal consumption of Beijing, is limited from the point of absolute. According to the policy experience from Beijing, adapted to the urban development, push continually, funded, enforced strongly for policies are the basic elements for a successful policy. In carrying out operations, the city reducing coal consumption should coordinate the relationship among policy, city orientation and industry development, and then insist this long-term relationship in the development. For reducing the pressure of money and carrying out smoothly, the city should develop gradually in different areas by stages.
In the background of controlling air pollution, reducing coal consumption has become an important public policy in China. Since 1998, the policy of reducing coal consumption has been carried out for nearly 20 years in Beijing, it provides much experience for other cities. In this paper, the policies of reducing coal consumption had been teased out systematically and then its effects had been evaluated preliminaryily in Beijing. The study found that reducing the coal used in the industry had a decisive role on coal consumption project, which accounted for 71.7% of the total coal consumption reduced during this period. Although the amount of per capita on living coal consumption had dropped by 43.5%, life's contribution, to the total reduce coal consumption of Beijing, is limited from the point of absolute. According to the policy experience from Beijing, adapted to the urban development, push continually, funded, enforced strongly for policies are the basic elements for a successful policy. In carrying out operations, the city reducing coal consumption should coordinate the relationship among policy, city orientation and industry development, and then insist this long-term relationship in the development. For reducing the pressure of money and carrying out smoothly, the city should develop gradually in different areas by stages.
引文
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[2]World Bank,WDI Datebase.PM2.5 air pollution,mean annual exposure(micrograms per cubic meter)[EB/OL].(2017-10-23).https://data.worldbank.org.cn/indicator/EN.ATM.PM25.MC.M3.
[3]王海英,孙莉.雾霾天气的综合防治研究——以河北为例[J].生态经济,2013(2):359-361.
[4]IEA.Key world energy statistics[M].Washington,DC:International Energy Agency,2015.
[5]陈潇君,金玲,雷宇,等.大气环境约束下的中国煤炭消费总量控制研究[J].中国环境管理,2015(5):42-49.
[6]《中国煤炭消费总量控制方案和政策研究项目》课题组.煤炭使用对中国大气污染的贡献[EB/OL].(2014-10-21).http://cn.chinagate.cn/reports/2014-10/21/content_33824166.htm.
[7]Brimblecombe P.Air pollution in industrializing England[J].Journal of the Air Pollution Control Association,1978,28(2):115-118.
[8]Pope III C A,Dockery D W.Health effects of fine particulate air pollution:Lines that connect[J].Journal of the Air&Waste Management Association,2006,56(6):709-742.
[9]Brook R D,Rajagopalan S,Pope C A,et al.Particulate matter air pollution and cardiovascular disease:An update to the scientific statement from the American Heart Association[J].Circulation,2010,121(21):2331-2378.
[10]Ayres J G.Trends in air quality in the UK[J].Allergy,1997,52(38):7-13.
[11]齐晔.中国低碳发展报告(2013):政策执行与制度创新[M].北京:社会科学文献出版社,2014.
[12]金玲,闫祯.散煤治理的经验、挑战与对策[J].中华环境,2016(11):34-37.
[13]United Nations Environment Programme(UNEP).A review of air pollution control in Beijing:1998-2013[R].Nairobia:UNEP,2016:13.
[14]北京市财政局,北京市环境保护局.《关于印发〈北京市锅炉改造补助资金管理办法〉补充规定的通知》[EB/OL].(2014-07-31).http://cphbj.bjchp.gov.cn/tabid/599/Info ID/396760/frtid/600/Default.aspx.
[15]张工.北京市副市长张工出席2017年度“清煤降氮”推进工作会上的讲话[EB/OL].(2017-02-07).http://bjrb.bjd.com.cn/html/2017-02/08/content_107971.htm.
[16]周楠.北京市今年20余万户居民煤改电[EB/OL].(2017-04-07).http://www.gov.cn/xinwen/2017-04/07/content_5183876.htm.
[17]国家统计局能源统计司.中国能源统计年鉴[M].北京:中国统计出版社,1997—2016.
[18]北京市统计局,国家统计局北京调查总队.北京统计年鉴[M].北京:中国统计出版社,2016.
[19]Zhang H,Wang S,Hao J,et al.Air pollution and control action in Beijing[J].Journal of Cleaner Production,2016,112:1519-1527.
[20]Finkelman R B,Orem W,Castranova V,et al.Health impacts of coal and coal use:Possible solutions[J].International Journal of Coal Geology,2002,50(1):425-443.
[21]白乌云.煤炭消费与大气环境突出问题浅析[J].中国人口·资源与环境,2016(S1):49-52.