常熟市生活垃圾收费政策研究
摘要
本文通过对常熟市环境卫生管理体制、资金情况,以及生活垃圾量、处理、收费基本情况的调查研究,深入分析了当前收费政策中存在的一些问题,主要体现在:一是收费政策设计缺乏系统性,没有按照国家有关规定及时开征居民户的生活垃圾处理费,没有体现污染者付费原则,造成公共收入的流失。二是缺乏政策评估和周期调整机制,没有根据常熟市经济发展状况定期对政策实施效果进行评估和作相应调整。三是收费项目的界定和划分不够科学,在具体操作过程中容易发生争议、产生矛盾。四是收费标准偏低,生活垃圾处理收费处于严重收不抵支的状况。五是对违规行为缺乏强制措施,使得违规成本低,违规现象普遍,乱倒垃圾行为时有发生,对欠交费或拒交费行为无可奈何,有失收费的公平性。六是交易成本较高,从而降低了效率和净收益。七是缺乏对环境保护的长远规划,为收费而收费,缺乏促进垃圾减量化、资源化、无害化的经济激励手段,不利于可持续发展。
借鉴国内外其他城市生活垃圾收费政策,根据循环经济理论、外部性理论、庇古税理论、交易费用理论等经济学理论,以及国家有关法律法规、规范性文件要求,结合常熟市实际情况,对生活垃圾收费政策提出了政策设计目标和原则、生活垃圾收费政策优化方案,并从环境有效、公平性、经济效率、可行性四个方面对生活垃圾收费政策进行了预测评估——实施前分析,以保证制定的收费政策能够达到预期的政策目标。
总之,本论文按照“调查研究-发现问题-分析问题-提出解决方案并进行预测评估”的逻辑结构和分析方法,调查研究了常熟市环境卫生管理体制、环卫资金情况,生活垃圾量、生活垃圾处理以及收费工作的现状,分析了存在的问题,并从公共经济学、循环经济学、环境经济学、财政学等角度,运用公共政策设计的原理和方法,对如何更科学、有效的制订常熟市生活垃圾收费政策提出了方案,以便寻找解决进一步加强生活垃圾管理,促进生活垃圾处理产业化的科学发展、可持续发展,实现生活垃圾处理“减量化、资源化、无害化”的目标,真正把常熟市建设成为生态文明城市、江苏省科学发展示范区。
This thesis analyzed in depth some issues in fee policies on household rubbish on basis of an investigation into the sanitation management system, funding status, amount of household rubbish, its handling and basic charges in this regard. The major issues are as follows: First of all, the thesis sees a lack of systematic nature in the formulating of fee policy as the city hasn’t started collecting rubbish handling fees from its citizens in time and as a result the policy that polluters pay isn’t implemented and a source of public revenue is lost. Secondly, the paper detects a dearth of mechanism for policy evaluation and cyclic adjustments and what we see is a failure for the city to effectively evaluate its policy implementations and make the corresponding adjustments on basis of Changshu’s economic development. Thirdly, the inadequate defining and demarcating of items which are subject to fee collection, leading to squabbles and resentment in the course of implementation. Number four issue is that the collecting fee is set too low, which leads to a serious imbalance between revenues and expenses. Number five issue is a lack of enforcement when non-compliance occurs, which contributes to widespread failure to obey the law due to a lack of punitive measures as a deterrent. As a result, random littering and dumping of rubbish occur frequently and there is powerlessness in dealing with failure to make payments in time or with some downright refusals to pay, leading to a loss of fairness. Number six issue is the relative high cost of transactions, resulting in a decreasing of efficiency and net profit margin. Number seven issue is a lack of long-term planning for environment protection. Fees are collected just for the purpose of collecting. There are no incentive measures to promote the practice of rendering the rubbish harmless, reducing the amount of rubbish and turning rubbish into resources. This will hurt sustainable development.
After consulting other domestic and international cities’practices in collecting rubbish fees and acting in line with circular economic theory, externality theory, Pigouvian tax and theories governing transaction expenses and following the requirements of related national rules, laws and some regulatory documents, this thesis presents policy formulating targets and principles and puts forward an optimized policy plan for household rubbish fee collecting on basis of the actual circumstances in Changshu city. The paper also endeavors to suggest some pre-evaluation and pre-analysis of implementation of the household rubbish fee collecting policy from four aspects: environmental effectiveness, fairness, economic benefit and feasibility. This is to make sure that the policy can achieve the pre-formulated target.
To sum up, the paper follows the logic structure and analytic method of‘investigation—identifying problems—analyzing the issues—presenting solutions and evaluations’and makes an in-depth investigation of the current circumstances visa-a-vis the management system for Changshu environmental hygiene, funding for the sanitary management, amount of household rubbish, rubbish processing and fee collecting. Then the paper makes an analysis of the excising problems before presenting a solution for formulating a more scientific and effective policy for household rubbish collecting fee by looking at the issues from the perspectives of such disciplines as public economy, circular economy, environmental economy and fiscal science and through the use of the principle and methods of public administration policy designing. The thesis seeks to enhance the management of household rubbish and promote the scientific and sustainable developments of the industrialization of household rubbish treatment so that household rubbish processing can achieve the target of becoming‘non-hazardous’, while the amount of rubbish is reduced and rubbish is turned into resources and the city of Changshu can become a eco-friendly city and a model city for scientific development in Jiangsu Province.
借鉴国内外其他城市生活垃圾收费政策,根据循环经济理论、外部性理论、庇古税理论、交易费用理论等经济学理论,以及国家有关法律法规、规范性文件要求,结合常熟市实际情况,对生活垃圾收费政策提出了政策设计目标和原则、生活垃圾收费政策优化方案,并从环境有效、公平性、经济效率、可行性四个方面对生活垃圾收费政策进行了预测评估——实施前分析,以保证制定的收费政策能够达到预期的政策目标。
总之,本论文按照“调查研究-发现问题-分析问题-提出解决方案并进行预测评估”的逻辑结构和分析方法,调查研究了常熟市环境卫生管理体制、环卫资金情况,生活垃圾量、生活垃圾处理以及收费工作的现状,分析了存在的问题,并从公共经济学、循环经济学、环境经济学、财政学等角度,运用公共政策设计的原理和方法,对如何更科学、有效的制订常熟市生活垃圾收费政策提出了方案,以便寻找解决进一步加强生活垃圾管理,促进生活垃圾处理产业化的科学发展、可持续发展,实现生活垃圾处理“减量化、资源化、无害化”的目标,真正把常熟市建设成为生态文明城市、江苏省科学发展示范区。
This thesis analyzed in depth some issues in fee policies on household rubbish on basis of an investigation into the sanitation management system, funding status, amount of household rubbish, its handling and basic charges in this regard. The major issues are as follows: First of all, the thesis sees a lack of systematic nature in the formulating of fee policy as the city hasn’t started collecting rubbish handling fees from its citizens in time and as a result the policy that polluters pay isn’t implemented and a source of public revenue is lost. Secondly, the paper detects a dearth of mechanism for policy evaluation and cyclic adjustments and what we see is a failure for the city to effectively evaluate its policy implementations and make the corresponding adjustments on basis of Changshu’s economic development. Thirdly, the inadequate defining and demarcating of items which are subject to fee collection, leading to squabbles and resentment in the course of implementation. Number four issue is that the collecting fee is set too low, which leads to a serious imbalance between revenues and expenses. Number five issue is a lack of enforcement when non-compliance occurs, which contributes to widespread failure to obey the law due to a lack of punitive measures as a deterrent. As a result, random littering and dumping of rubbish occur frequently and there is powerlessness in dealing with failure to make payments in time or with some downright refusals to pay, leading to a loss of fairness. Number six issue is the relative high cost of transactions, resulting in a decreasing of efficiency and net profit margin. Number seven issue is a lack of long-term planning for environment protection. Fees are collected just for the purpose of collecting. There are no incentive measures to promote the practice of rendering the rubbish harmless, reducing the amount of rubbish and turning rubbish into resources. This will hurt sustainable development.
After consulting other domestic and international cities’practices in collecting rubbish fees and acting in line with circular economic theory, externality theory, Pigouvian tax and theories governing transaction expenses and following the requirements of related national rules, laws and some regulatory documents, this thesis presents policy formulating targets and principles and puts forward an optimized policy plan for household rubbish fee collecting on basis of the actual circumstances in Changshu city. The paper also endeavors to suggest some pre-evaluation and pre-analysis of implementation of the household rubbish fee collecting policy from four aspects: environmental effectiveness, fairness, economic benefit and feasibility. This is to make sure that the policy can achieve the pre-formulated target.
To sum up, the paper follows the logic structure and analytic method of‘investigation—identifying problems—analyzing the issues—presenting solutions and evaluations’and makes an in-depth investigation of the current circumstances visa-a-vis the management system for Changshu environmental hygiene, funding for the sanitary management, amount of household rubbish, rubbish processing and fee collecting. Then the paper makes an analysis of the excising problems before presenting a solution for formulating a more scientific and effective policy for household rubbish collecting fee by looking at the issues from the perspectives of such disciplines as public economy, circular economy, environmental economy and fiscal science and through the use of the principle and methods of public administration policy designing. The thesis seeks to enhance the management of household rubbish and promote the scientific and sustainable developments of the industrialization of household rubbish treatment so that household rubbish processing can achieve the target of becoming‘non-hazardous’, while the amount of rubbish is reduced and rubbish is turned into resources and the city of Changshu can become a eco-friendly city and a model city for scientific development in Jiangsu Province.
引文
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[1]孙立明,黄凯兴.美国城市生活垃圾处理现状与思考[J].工业安全与环保,2004,12:16.
[2]张越,鲁明中.城市生活垃圾政策的经济学分析[J].环境科学动态,2005,1:46.
[3]李大勇,郭瑞雪.城市生活垃圾收费的理论分析[J].理论与实践,2005,12:103.
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