摘要
排污许可制作为固定源管理的核心基础制度,实现了对单个固定源的微观管理,具备了“协商式”环境行政管理实施的基本条件。本文引入“协商式”管理政策概念,以水泥企业为例,在法律法规授权范围内,通过行政协商确定更严格的排放限值、重污染天气日许可量、更灵活的监测和记录规定等许可条款,对其可执行性、成本有效性进行分析。结果显示:①在环保税收优惠的经济激励作用下,企业承诺执行更严格的排放限值,成本有效性更好。②加严最佳可行控制技术排放水平,满足成本有效性条件,但是当前技术不成熟,不满足技术可行原则,政府未能与企业协商一致。③针对重污染天气应急管理,实施排放量“日管理”,能够做到可监测、可记录、可核查,成本有效。④针对小收尘器颗粒物排放口,采用协商的替代性监测管理方案,效果更优且更具成本有效性。行政管理部门和企业之间进行协商,达成“协商式”许可条款,作为对“统一标准”的“微调”补充,在排污许可证中执行,可有效提高污染控制和排放管理的成本有效性,实施效果和经济效率能够更好地平衡。建议加强法律、法规、规章、标准、技术规范等体系建设,将法律原则性条款不断细化和明确,明确可达成“协商式”许可条款的法律授权,满足缩短决策时间、提高经济效率的原则,赋予地方政府更多但有限度的灵活性。建议对政府在排污许可行政管理协商过程中的自由裁量权进行限制,明确协商程序,明确允许以协商方式产生的许可事项列表,对包括制定机制、违反的惩罚机制等在内的各项规定进行梳理和完善。
As a basic system for stationary sources,the pollutant discharge permit system can help to realize micro-management for individual sources,thus providing the basic conditions for the implementation of negotiated environmental administrative regulation.This paper introduces the concept of‘administration through negotiation’,analyses the case of a cement factory,in which permit items such as more strict emission limits,daily discharge volume limit relevant to the heavy air pollution emergency plans and more flexible monitoring and recording regulations are set up through negotiation process,and discusses the feasibility and the cost effectiveness of the process.The results are as follows:①Negotiated emission limits through environmental protection tax allowance and exemption is more cost effective.②With more strict BAT discharge values,the condition of cost effectiveness is met.Yet the lack of feasibility would lead to disagreement between the administrative and the factory regarding emission limits.③With the heavy air pollution emergency plans,a daily discharge volume limit is able to be monitored,recorded and verified,and thus is more cost effective.④In terms of the small discharge ports of dust collectors,the paper believes that through a negotiated monitoring plan,the permit will be carried out more efficiently and cost effectively.The administrative departments and the enterprises can negotiate to achieve agreements on the permit items,and the permit items can be seen as the‘fine-tuning’complement to the‘unified’emission limits of various emission standards,the execution of which can improve the cost effectiveness of pollution discharge control and emission management and can ensure the balance between implementation effect and economic efficiency.The paper suggests that the legal system involving laws,regulations,standards and technical specifications shall be strengthened and the legal principles shall be specified and clarified.Furthermore,the legal authorization for the negotiations in the permit system shall be transparent and the local governments shall be given more yet limited flexibility,in order to shorten the decision time and improve the effectiveness.At the same time the discretionary power of the governments shall be strictly limited,which means that the negotiation procedures and the negotiable permit issues shall be specified and the rule-making mechanism and the negative effects caused by violations be sorted out.
作者
王亚琼
王颖
宋国君
康桢
国潇丹
WANG Ya-qiong;WANG Ying;SONG Guo-jun;KANG Zhen;GUO Xiao-dan(School of Environmental&Natural Resources,Renmin University of China,Beijing 100872,China;Hebei Dezheng Law Firm,Shijiazhuang Hebei 050061,China;Shaanxi Environmental Investigation and Assessment Center,Xi an Shaanxi 710054,China)
出处
《中国人口·资源与环境》
CSSCI
CSCD
北大核心
2020年第7期93-99,共7页
China Population,Resources and Environment
基金
国家重点研发计划项目“区域大气污染联防联控支撑系统建设与污染防治战略研究”(批准号:2017YFC0212503)。
关键词
排污许可制度
协商
排放标准
微调
效率
pollutant discharge permit system
negotiation
emission standard
fine-tuning
effectiveness
