海洋环境污染损害中直接损失的识别及评估指标体系的构建
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摘要
海洋环境污染损害中直接损失的定量评估,已成为环境污染损害赔偿及行政处罚的重要依据。针对目前中国海洋环境污染损害评估工作中因环保职责分散和视角差异而存在的评估内容不衔接、量化方法不一致的问题,以人类与海洋生态系统组成的整体作为研究对象,对海洋环境污染损害进行了剖析和梳理,明确了损害的分类与范畴,特别是海洋生态系统损害与人类活动损害之间的衔接与界限;并依据法学理论和法律文件,识别出各类损害中的直接损失;进而遵循科学性和可量化性等原则,建立了直接损失的评估指标体系。此指标体系涵盖了海洋环境污染造成的人身损害、财产损害、海洋生态损害和事务性支出四类损失,具体包括身体损害、精神损害、水产品损失、固定资产损失、流动资产损失、保护财产的额外支出、恢复期间利润损失、海洋生态恢复费用、恢复期间生态损失、应急处置费、调查评估费共11项指标。研究成果可为中国海洋环境污染损害的定量评估提供有力支撑,促进损害赔偿和行政处罚工作的定量化和科学化进程。
It is important to assess quantitatively the direct losses caused by marine environmental pollution for damage compensation and administrative penalty.But due to different responsibilities and perspectives,there is still no consistent assessment contents and quantitative methods on direct losses in China.Considering both human and marine ecosystem,the pollution damages are analyzed and categorized comprehensively.It reveals clearly the category and scope of pollution damages,especially the connection and distinction between human activities damage and marine ecosystem damage caused by pollution. Furthermore,according to the popular theory and laws,the direct losses of all kinds of damages are identified.And then,based on the principle of science and quantization,the assessment index system is proposed,including the four losses of personal injury,property damage,marine ecological damage and administrative affairs expenditure,which are further divided into the 11 indexes of physical injury,mental injury,loss of aquatic products,loss of fixed assets,loss of current assets,additional cost for protecting assets,loss of profit during recovery,cost of marine ecological restoration,loss of ecosystem services during recovery,cost of emergency disposal,cost of investi-gation and evaluation.The research results could give support to the quantitative assessment of marine environmental pollution damage,and make damage claim and administrative punishment more quantitative and scientific in china.
It is important to assess quantitatively the direct losses caused by marine environmental pollution for damage compensation and administrative penalty.But due to different responsibilities and perspectives,there is still no consistent assessment contents and quantitative methods on direct losses in China.Considering both human and marine ecosystem,the pollution damages are analyzed and categorized comprehensively.It reveals clearly the category and scope of pollution damages,especially the connection and distinction between human activities damage and marine ecosystem damage caused by pollution. Furthermore,according to the popular theory and laws,the direct losses of all kinds of damages are identified.And then,based on the principle of science and quantization,the assessment index system is proposed,including the four losses of personal injury,property damage,marine ecological damage and administrative affairs expenditure,which are further divided into the 11 indexes of physical injury,mental injury,loss of aquatic products,loss of fixed assets,loss of current assets,additional cost for protecting assets,loss of profit during recovery,cost of marine ecological restoration,loss of ecosystem services during recovery,cost of emergency disposal,cost of investi-gation and evaluation.The research results could give support to the quantitative assessment of marine environmental pollution damage,and make damage claim and administrative punishment more quantitative and scientific in china.
引文
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[2]DESVOUSGES W H,GARD N,MICHAEL H J,et al.Habitat and resource equivalency analysis:a critical assessment[J].Ecological Economics,2018,143:74-89.
[3]CLOUGH J S,BLANCHER II E C,PARK R A,et al.Establishing nearshore marine injuries for the Deepwater Horizon natural resource damage assessment using AQUATOX[J].Ecological Modelling,2017,359:258-268.
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[12]蔡锋,李新宇,陈刚才,等.次级河流水污染事件应急处置程序及环境损害评估技术路线[J].环境工程学报,2014,8(9):3658-3664.
[13]张继伟,袁征,王金坑.基于生境等价分析法的溢油生态损害评估[J].中国人口·资源与环境,2015,25(S1):162-166.
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[16]DUNFORD R W,GINN T C,DESVOUSGES W H.The use of habitat equivalency analysis in natural resource damage assessments[J].Ecological Economics,2004,48(1):49-70.
[17]STEINWAY D M,SEITZ J B.Natural resource damages in the European Union[J].Environmental Claims Journal,2008,20(4):317-321.
[18]OFIARA D D.Natural resource damage assessments in the United States:rules and procedures for compensation from spills of hazardous substances and oil in waterways under US jurisdiction[J].Marine Pollution Bulletin,2002,44(2):96-110.
[19]李京梅,侯怀洲,姚海燕,等.基于资源等价分析法的海洋溢油生物资源损害评估[J].生态学报,2014,34(13):3760-3770.
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[22]GB/T 34546.1-2017,海洋生态损害评估技术导则第1部分:总则[S].
[23]GB/T 34546.2-2017,海洋生态损害评估技术导则第2部分:海洋溢油[S].
[24]GB/T 21678-2008,渔业污染事故经济损失计算方法[S].
[25]第一次全国海洋经济调查领导小组办公室.第一次全国海洋经济调查海洋及相关产业分类[M].北京:海洋出版社,2017:3-43.
[26]危敬添.关于国际油污赔偿基金组织索赔手册[J].交通环保,1999,20(2):33-35.
[27]国家海洋局.蓬莱19-3油田溢油事故联合调查组关于事故调查处理报告[EB/OL].[2012-06-21].http://www.soa.gov.cn/xw/hyyw_90/201211/t20121109_884.html.
[28]杨威,李明春,朱瑞良."塔斯曼海"案一审宣判[N].中国海洋报,2004-12-31.
[29]WIENS J A.Review of an ecosystem services approach to assessing the impacts of the deepwater horizon oil spill in the gulf of Mexico[J].Fisheries,2015,40(2):86.
[30]刘伟峰.海洋溢油污染生态损害评估研究[D].青岛:中国海洋大学,2010:72-79.
[31]COSTANZA R,D'ARGE R,DE GROOT R,et al.The value of the world's ecosystem services and natural capital[J].Nature,1997,387(6630):253-260.
[32]DAILY G C,SDERQVIST T,ANIYAR S,et al.The value of nature and the nature of value[J].Science,2000,289(5478):395-396.
[33]黄文怡,赵雯璐,蔡明刚.海洋溢油污染的生态系统服务功能损失及评估方法[J].中国人口·资源与环境,2013,23(11):363-367.
[34]张朝晖,王宗灵,朱明远.海洋生态系统服务的研究进展[J].生态学杂志,2007,26(6):925-932.
[35]姜明安,余凌云.行政法[M].北京:科学出版社,2010:586-587.
[36]刘嗣元,石佑启.国家赔偿法要论[M].北京:北京大学出版社,2005:101-102.
[37]丁邦开,钱芳.将间接损失纳入《国家赔偿法》的立法探讨[J].上海财经大学学报,2004,6(1):68-72.
[38]陈希国.国家赔偿法中直接损失的法律解释[J].人民司法,2016(13):98-101.
[39]杨江涛.对国家赔偿法中直接损失的理解[J].人民司法,2015(21):100-104.
[40]韩永伟,高馨婷,高吉喜,等.重要生态功能区典型生态服务及其评估指标体系的构建[J].生态环境学报,2010,19(12):2986-2992.
[41]张朝晖,石洪华,姜振波,等.海洋生态系统服务的来源与实现[J].生态学杂志,2006,25(12):1574-1579.
[42]MEI H,YIN Y J.Studies on marine oil spills and their ecological damage[J].Journal of Ocean University of China,2009,8(3):312-316.
[43]中华人民共和国最高人民法院.最高人民法院关于审理人身损害赔偿案件适用法律若干问题的解释[EB/OL].[2003-12-26].http://www.cnsn.gov.cn/szfml/zcjdu/201805/25db7af8b8514e0691332c3c83f0bb08.shtml.
[44]中华人民共和国最高人民法院.最高人民法院关于确定民事侵权精神损害赔偿责任若干问题的解释[EB/OL].[2001-02-26].http://www.law-lib.com/law/law_view.asp?id=589.
[45]中华人民共和国最高人民法院.最高人民法院关于审理海洋自然资源与生态环境损害赔偿纠纷案件若干问题的规定[EB/OL].[2018-01-05].http://www.court.gov.cn/fabuxiangqing-76502.html.
[46]环境保护部环境规划院.《环境污染损害数额计算推荐方法》编制说明[R].北京:中华人民共和国环境保护部,2011:11-21.
[2]DESVOUSGES W H,GARD N,MICHAEL H J,et al.Habitat and resource equivalency analysis:a critical assessment[J].Ecological Economics,2018,143:74-89.
[3]CLOUGH J S,BLANCHER II E C,PARK R A,et al.Establishing nearshore marine injuries for the Deepwater Horizon natural resource damage assessment using AQUATOX[J].Ecological Modelling,2017,359:258-268.
[4]NOAA.Deepwater Horizon Oil Spill:Final programmatic damage assessment and restoration plan and final programmatic environmental impact statement[DB/OL].[2016-02].https://www.gulfspillrestoration.noaa.gov/restoration-planning/gulf-plan.
[5]张红振,王金南,牛坤玉,等.环境损害评估:构建中国制度框架[J].环境科学,2014,35(10):4015-4029.
[6]於方,张衍燊,赵丹,等.环境损害鉴定评估技术研究综述[J].中国司法鉴定,2017(5):18-29.
[7]GASTINEAU P,TAUGOURDEAU E.Compensating for environmental damages[J].Ecological Economics,2014,97:150-161.
[8]张红振,曹东,於方,等.环境损害评估:国际制度及对中国的启示[J].环境科学,2013,34(5):1653-1666.
[9]陈凤桂,张继伟,陈克亮,等.基于生态修复的海洋生态损害评估方法研究[M].北京:海洋出版社,2015:1-19.
[10]Office of Response and Restoration,NOAA.Natural resource damage assessment(NRDA)process[EB/OL].[2013-02-13].https://www.darrp.noaa.gov/what-we-do/naturalresource-damage-assessment.
[11]BURLINGTON L B.An update on implementation of natural resource damage assessment and restoration under OPA[J].Spill Science&Technology Bulletin,2002,7(1/2):23-29.
[12]蔡锋,李新宇,陈刚才,等.次级河流水污染事件应急处置程序及环境损害评估技术路线[J].环境工程学报,2014,8(9):3658-3664.
[13]张继伟,袁征,王金坑.基于生境等价分析法的溢油生态损害评估[J].中国人口·资源与环境,2015,25(S1):162-166.
[14]LEE V A,BRIDGEN P J.The natural resource damage assessment deskbook:a legal and technical analysis[M].2nd ed.Washington DC:Environmental Law Institute,2002.
[15]BARNTHOUSE L W,STAHL R G JR.Quantifying natural resource injuries and ecological service reductions:challenges and opportunities[J].Environmental Management,2002,30(1):1-12.
[16]DUNFORD R W,GINN T C,DESVOUSGES W H.The use of habitat equivalency analysis in natural resource damage assessments[J].Ecological Economics,2004,48(1):49-70.
[17]STEINWAY D M,SEITZ J B.Natural resource damages in the European Union[J].Environmental Claims Journal,2008,20(4):317-321.
[18]OFIARA D D.Natural resource damage assessments in the United States:rules and procedures for compensation from spills of hazardous substances and oil in waterways under US jurisdiction[J].Marine Pollution Bulletin,2002,44(2):96-110.
[19]李京梅,侯怀洲,姚海燕,等.基于资源等价分析法的海洋溢油生物资源损害评估[J].生态学报,2014,34(13):3760-3770.
[20]环境保护部环境规划院.环境损害鉴定评估推荐方法(第II版)[R].北京:中华人民共和国环境保护部,2014:6-31.
[21]中华人民共和国环境保护部.生态环境损害鉴定评估技术指南总纲[R].北京:中华人民共和国环境保护部,2016:1-13.
[22]GB/T 34546.1-2017,海洋生态损害评估技术导则第1部分:总则[S].
[23]GB/T 34546.2-2017,海洋生态损害评估技术导则第2部分:海洋溢油[S].
[24]GB/T 21678-2008,渔业污染事故经济损失计算方法[S].
[25]第一次全国海洋经济调查领导小组办公室.第一次全国海洋经济调查海洋及相关产业分类[M].北京:海洋出版社,2017:3-43.
[26]危敬添.关于国际油污赔偿基金组织索赔手册[J].交通环保,1999,20(2):33-35.
[27]国家海洋局.蓬莱19-3油田溢油事故联合调查组关于事故调查处理报告[EB/OL].[2012-06-21].http://www.soa.gov.cn/xw/hyyw_90/201211/t20121109_884.html.
[28]杨威,李明春,朱瑞良."塔斯曼海"案一审宣判[N].中国海洋报,2004-12-31.
[29]WIENS J A.Review of an ecosystem services approach to assessing the impacts of the deepwater horizon oil spill in the gulf of Mexico[J].Fisheries,2015,40(2):86.
[30]刘伟峰.海洋溢油污染生态损害评估研究[D].青岛:中国海洋大学,2010:72-79.
[31]COSTANZA R,D'ARGE R,DE GROOT R,et al.The value of the world's ecosystem services and natural capital[J].Nature,1997,387(6630):253-260.
[32]DAILY G C,SDERQVIST T,ANIYAR S,et al.The value of nature and the nature of value[J].Science,2000,289(5478):395-396.
[33]黄文怡,赵雯璐,蔡明刚.海洋溢油污染的生态系统服务功能损失及评估方法[J].中国人口·资源与环境,2013,23(11):363-367.
[34]张朝晖,王宗灵,朱明远.海洋生态系统服务的研究进展[J].生态学杂志,2007,26(6):925-932.
[35]姜明安,余凌云.行政法[M].北京:科学出版社,2010:586-587.
[36]刘嗣元,石佑启.国家赔偿法要论[M].北京:北京大学出版社,2005:101-102.
[37]丁邦开,钱芳.将间接损失纳入《国家赔偿法》的立法探讨[J].上海财经大学学报,2004,6(1):68-72.
[38]陈希国.国家赔偿法中直接损失的法律解释[J].人民司法,2016(13):98-101.
[39]杨江涛.对国家赔偿法中直接损失的理解[J].人民司法,2015(21):100-104.
[40]韩永伟,高馨婷,高吉喜,等.重要生态功能区典型生态服务及其评估指标体系的构建[J].生态环境学报,2010,19(12):2986-2992.
[41]张朝晖,石洪华,姜振波,等.海洋生态系统服务的来源与实现[J].生态学杂志,2006,25(12):1574-1579.
[42]MEI H,YIN Y J.Studies on marine oil spills and their ecological damage[J].Journal of Ocean University of China,2009,8(3):312-316.
[43]中华人民共和国最高人民法院.最高人民法院关于审理人身损害赔偿案件适用法律若干问题的解释[EB/OL].[2003-12-26].http://www.cnsn.gov.cn/szfml/zcjdu/201805/25db7af8b8514e0691332c3c83f0bb08.shtml.
[44]中华人民共和国最高人民法院.最高人民法院关于确定民事侵权精神损害赔偿责任若干问题的解释[EB/OL].[2001-02-26].http://www.law-lib.com/law/law_view.asp?id=589.
[45]中华人民共和国最高人民法院.最高人民法院关于审理海洋自然资源与生态环境损害赔偿纠纷案件若干问题的规定[EB/OL].[2018-01-05].http://www.court.gov.cn/fabuxiangqing-76502.html.
[46]环境保护部环境规划院.《环境污染损害数额计算推荐方法》编制说明[R].北京:中华人民共和国环境保护部,2011:11-21.