美国固定源监管机制对我国排污许可证实施的借鉴
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摘要
在对我国排污许可制度历史分析的基础上,总结其发展特点和监管缺失的根本原因。1990年美国《清洁空气法》修正案颁布后,为了巩固许可制度的实施和运行,在1991年发布了固定源守法监测战略(CAA CMS)。在分析CAA CMS的发展、主要内容、组织保障体系、监管制度及环境效益等的基础上,借鉴其先进的监管思想,提出了保障我国许可制度实施的执法监测体系。该体系由中央政府(环境保护部)、省/地方的环境保护厅/局、企业组成。其中,环境保护部相关业务部门面向全国,根据生态文明建设发展战略的阶段任务,负责制定执法监测规章制度和相关指南;省/地方环境保护厅/局根据辖区内执法资源的配置,负责制定执法监测计划并负责落实,同时接受上级主管部门和公众的监督、监察;在为企业提供守法援助的基础上,对企业落实排污许可各项制度进行全面监管,并加大违法行为处罚力度,除对企业处罚外,还需对企业主要管理人员进行追责。
Based on an analysis of the development of pollution permitting system in China, the development charaterisitics of the permitting system and the reasons of lacking supervision and inspection were summarized. In America, US EPA issued Clean Air Act Stationary Source Compliance Monitoring Strategy( CAA CMS) in 1991 to ensure that the regulated facilities across the country are evaluated for compliance on a regular basis. The revised history, main contents, organization and guaranteeing systems, and supervision instruments of CAA CMS and the environmental benefits were analysed. Drawing on the experiences of CAA CMS, the compliance-monitoring framework in China for implementing pollution permitting system was put forward. The compliance-monitoring framework consists of central government departments, provinces/locals and enterprises. The central government departments are responsible for developing and issuing a series of rules and regulations. The provinces/locals establish and implement compliance-monitoring plans in accordance with requirements of national policies, and focus resources on those facilities that are most environmentally significant, and they are under supervision and surveillance of the superior departments and the public. The provinces/locals shall conduct inspections and evaluations of enterprises in enhancing implementation of pollution permitting system based on compliance assistance, and increase penalties of polluting enterprises. In addition to the punishment to the enterprises, it isalso necessary to pursue managers the enterprises for a criminal violation.
Based on an analysis of the development of pollution permitting system in China, the development charaterisitics of the permitting system and the reasons of lacking supervision and inspection were summarized. In America, US EPA issued Clean Air Act Stationary Source Compliance Monitoring Strategy( CAA CMS) in 1991 to ensure that the regulated facilities across the country are evaluated for compliance on a regular basis. The revised history, main contents, organization and guaranteeing systems, and supervision instruments of CAA CMS and the environmental benefits were analysed. Drawing on the experiences of CAA CMS, the compliance-monitoring framework in China for implementing pollution permitting system was put forward. The compliance-monitoring framework consists of central government departments, provinces/locals and enterprises. The central government departments are responsible for developing and issuing a series of rules and regulations. The provinces/locals establish and implement compliance-monitoring plans in accordance with requirements of national policies, and focus resources on those facilities that are most environmentally significant, and they are under supervision and surveillance of the superior departments and the public. The provinces/locals shall conduct inspections and evaluations of enterprises in enhancing implementation of pollution permitting system based on compliance assistance, and increase penalties of polluting enterprises. In addition to the punishment to the enterprises, it isalso necessary to pursue managers the enterprises for a criminal violation.
引文
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[19]宋国君,赵英煚,李虹霖,等.空气固定源排污许可证管理模式设计[J].环境保护,2017(增刊):65-68.
[20]Offie of Compliance.Issuance of the Clean Air Act stationary source compliance monitoring strategy[R].Washington DC:US EPA.2001,2014,2016.
[21]OECA.Next generation compliance strategic plan 2014-2017[R].Washington DC:US EPA.2014.
[22]Office of Air and Radiation,US EPA.The benefits and costs of the Clean Air Act from 1990 to 2020 final report[R].Washington DC:US EPA,2011.
[2]李克国.排污许可证交易的理论与实践[J].重庆环境科学,2000,22(4):10-12,19.
[3]赵军.浅论污染物排放总量控制[J].山东环境,2000(增刊):28-29.
[4]李启家,蔡文灿.论我国排污许可证制度的整合与拓展[J].环境资源法论丛,2006(1):171-188.
[5]罗吉.完善我国排污许可证制度的探讨[J].河海大学学报(哲学社会科学版),2008,10(3):32-26.
[6]王金南,董战峰,杨金田,等.排污交易制度的最新实践与展望[J].环境经济,2008(10):31-45.
[7]毕军,周国梅,张炳,等.排污权有偿使用的初始分配价格研究[J].环境保护,2007,7(A):51-54.
[8]国家环境保护总局办公厅.关于征求对《排污许可证管理条例》(征求意见稿)意见的函(环办函[2008]16号)[A].北京:国务院,2016.
[9]浙江省排污许可证管理暂行办法[A].杭州:浙江省人民政府,2010.
[10]上海市环境保护局.上海市主要污染物排放许可证管理办法[A/OL].上海:上海市环境保护局.[2017-11-29].http://www.sepb.gov.cn/fa/cms/shhj//shhj2013/shhj2021/2014/10/87704.htm.
[11]国务院.关于控制污染物排放许可制实施方案的通知(国办发[2016]81号)[A].北京:国务院,2016.
[12]海南省人民政府办公厅.海南省排污许可证试点管理办法[A].海口:海南省人民政府,2017.
[13]上海市环境保护局.上海市排污许可证管理实施细则[A].上海:上海市环境保护局,2017.
[14]张连辉,赵凌云.1953—2003年间中国环境保护政策的历史演变[J].中国经济史研究,2007(4):63-72.
[15]环境保护部.对十二届全国人大三次会议第6573号建议的答复环建函[2015]110号[A/OL].北京:环境保护部,2015.(2015-07-20).http://www.mep.gov.cn/gkml/hbb/qt/201511/t20151113_3169 99.htm.
[16]全国首批排污许可证落地“一证式”管理提升环境监管效能[N/OL].中国环境报.[2017-03-28].http://www.cenews.com.cn/xwzx2013/201703/t.
[17]卢瑛莹,冯晓飞,陈佳.排污许可证制度实践与改革探索[M].北京:中国环境出版社,2016.
[18]环境保护部.火电、造纸行业排污许可证执法检查工作方案[A/OL].北京:环境保护部,2017.[2017-08-14].http://www.mep.gov.cn/gkml/hbb/bgt/201708/t20170816_419758.htm.
[19]宋国君,赵英煚,李虹霖,等.空气固定源排污许可证管理模式设计[J].环境保护,2017(增刊):65-68.
[20]Offie of Compliance.Issuance of the Clean Air Act stationary source compliance monitoring strategy[R].Washington DC:US EPA.2001,2014,2016.
[21]OECA.Next generation compliance strategic plan 2014-2017[R].Washington DC:US EPA.2014.
[22]Office of Air and Radiation,US EPA.The benefits and costs of the Clean Air Act from 1990 to 2020 final report[R].Washington DC:US EPA,2011.