广州市重大危险源的辨识和评价及其风险防范策略
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摘要
化学工业在全球的迅速发展和化学工业品进入人类生活，为人类社会的物质文明作出了巨大的贡献，但也不得不看到随着化学工业发展并推动其它工业发展的同时，化学事故的规模和频率也在逐年上升。特别象印度博帕尔农药厂那样震惊国际社会的突发城市化学事故给人类带来的灾难，已在全球突发事件中占有相当比重，平均每年要发生200多起，而且就其规模和频率还在逐年上升，给人类的生命安全和赖以生存的大自然的生态平衡带来了潜在的威胁。后果如此严重的城市灾难性化学事故已引起国际社会的高度重视。另外，近年来国际上和国内的一些恐怖分子、极端分子、黑社会团体有出现基于某些政治或个人的目的，通过破坏化工企业制造化学恐怖事件，以产生轰动效应而引起社会各界关注的趋势，这也不得不引起高度重视。
突发化学事故应急体系的建立是关系到国家安全、社会稳定和人民健康的重要工作，是现代化城市建设的一个十分紧迫的社会课题。有专家指出工业化进程的加快，是化学事故频发的重要原因。上世纪70年代出现了“燃烧的美国”，随后有了“燃烧的俄罗斯”。现在，中国也丌始进入化学事故高发期，并呈现出事故“点多面广、类型增加、救援难度大”的新特点。自美国发生“9．11”恐怖袭击事件和俄罗斯人质事件相继发生以来，如何科学应对突发事件，保证国家政治、经济和社会安全稳定已成为我国政府和公众关注的焦点之一。
在我国、我省和我市广泛存在突发化学事故的潜在的隐患，形势异常严峻。近年来各种影响恶劣的突发化学事故时有发生：远的如1993年8月5日深圳清水河危险化学品仓库大爆炸，致15人丧生、800多人受伤，3.9万平方米建筑物毁坏，直接经济损失2.5亿元；2002年9月14日发生在南京汤山的投毒案，短时间内出现300多人中毒，42人死亡；2003年12月23日，发生在重庆市开县高桥镇的特大井喷事故，导致事发地方圆5公里内的4.1万多名群众被疏散，造成243人死亡；重庆市天原化工总厂氯气泄漏事故，致使九人失踪死亡，十五万人撤离；2005年11月中石油吉林石化公司双苯厂发生爆炸事故导致大量苯类污染物进入松花江水体，引发的重大水污染事故轰动全球，不单严重扰乱了松花江流域居民的正常生活，还在一定程度上损害了国家的声誉。
广州可谓国内涉及危险化学品数量大、范围广的城市之一，化工企业特别是涉及化学危险品的单位很多，生产、经营、贮存、运输、使用、报废等各个环节的从业单位达数千家。仅2003年一年经广州周转的危险化学品就有3000多万吨。因此为努力遏制各类化学事故的发生；事故发生后，最大限度地减少人员伤亡和财产损失；并考虑反恐怖斗争的形势要求，建立强有力的自上而下的化学事故应急救援体系势在必行。
自从国家《突发公共卫生事件应急处理条例》、《广州市突发公共卫生事件应急预案》和《广州市突发化学事故应急救援预案》等规范性文件颁布实施以来，广州市在如何快速防范、处置危险化学品突发事故发生的工作总体发展趋势较好，在法制建设、社会化管理、防范力量发展和基础设施建设等方面都取得了明显进步，为保护国家财产和人民群众生命安全、保障社会主义现代化建设的顺利进行，发挥了重要作用。但是也必须清醒认识到，目前在如何防范和控制危险化学品事故发生的工作方面仍滞后于整个经济建设和社会发展，其主要原因在于：一是石化、化工行业发展迅猛，事故突发的危险性加大；二是城市规划与石化、化工行业的快速发展不相协调，生活区与厂区混杂现象越来越突出，即使较小的化学事故也有可能引发严重的后果；三是危险化学品运输量日益增加、加油气站遍地设点；四是重大危险源数量大、分布广，未能建立完善的重大危险源监控系统；五是生产经营单位数量多，危险性大，事故多发。
基于此，本课题拟根据重大危险源辨识国家标准(GB 18218-2000)的辨识依据和方法，根据《危险化学品安全管理条例》和《安全生产许可证条例》等法律法规的相关规定，在广州市生产安全监督管理局和公安消防局联合开展的危险化学品和矿山等领域安全专项整治工作的基础上，对广州市范围内的从事危险化学品的单位和企业进行了普查，建立广州市危险化学品数据库，确定构成重大危险源的危险化学品从业单位，分析这些重大危险源的性质、种类、分布并对其安全状况和发生事故的风险进行评价，在此基础上提出广州市防范突发化学事故发生和事故发生后的应对策略，最终为广州市开展生产安全重点监控管理，建立或健全及时、准确的突发化学事故预警、预测技术和应急体系提供技术基础保障。
调查结果显示，广州市危险化学品从业单位总计有3872家，从业人口达80多万，其中达到重大危险源标准的有261家，生产场所重大危险源占36％(94家)，贮存区重大危险源生产单位占64％(167家)；构成广州市重大危险源的危险化学品主要是有毒品、压缩气体和液化气体这两类，此外，易燃液体、易燃固体、自燃物品和遇湿易燃物品、氧化剂和有机过氧化物、腐蚀品也不在少数；有毒品和有害气体构成的重大危险源中，一级危险源22个、二级危险源15个、三级危险源34个、四级危险源25个，35.6％低危险等级(三级和四级)有毒品和有毒气体具有易反应性特点；现阶段，仍有三分之一的构成重大危险源的危险化学品单位分布距离密集居民区500m以内的范围；市属各区(市)均有能对珠江水源造成直接污染威胁的危险化学品单位；仅有68％重大危险源建立了应急救援预案，即使在有毒品构成的重大危险源中仍然又约10％未建立应急救援预案。同时，部分重大危险源尽管制订了应急救援预案，但存在预案针对性不强、缺少经常性演练的情形。结果表明，广州市发生城市化学灾害事故存在的机率较高，其中城乡结合部是危险化学品事故的易发区，是防范城市化学灾害事故发生需要重点注意的地区；重大危险源一旦发生重大化学事故，波及的范围较大，受危害或是影响的人群较多，大量的人员需要疏散；重大危险源发生事故时引起人员中毒的可能性较大并且极有可能面临人员出现重大伤亡的危险；同时，重大危险源发生事故对珠江污染具有现实的可能性；另外，由于广州市重大危险源是以贮存区重大危险源为主，因此，预防重大危险源泄漏事故的发生任重道远。
根据重大危险源辨识和评价结果，从政府部门、危险化学品从业单位和个人三个层面提出了以下几方面的防范策略，以便为政府开展危险化学品专项整治决策提供切实可行性的方案。
政府层面：
1．各级政府、各有关部门要结合实际，针对本地区的情况和本部门的管理职责，制定有关配套的行之有效的管理制度，加强规范监管。
2．应投入一定的经费，组建以重大危险源附近的社区和人群为单位建立事故预防和救援机构，充分发挥群众的积极性和主动性。另外，为科学防范和处置城市灾害性化学事故，政府有必要在科学研究方面给予重点倾斜，加强对城市灾害性化学事故的新动向和特点的研究。
3．全面摸清底数，建立全市危险化学品安全管理信息系统。
4．继续做好构成重大危险源的危险化学品生产、储存和经营单位评价、审批工作。
5．对可能造成社会影响广、伤亡重、经济损失大的重点地区和重点目标加强防制，同时也要兼顾散发、频发的局限性灾害事故。
6．按照“间距最大化”原则进行城市规划，将重大危险源与居民区、建筑群进行隔离。
7．公安、消防、安全监督、质检、环境保护、工商等职能部门要制定相应的执法制度，加大对重大危险源的检查力度。
8．加强应急救援预案的演习和完善、应急救援器材和设备的储备、应急救援专业队伍的培养。
9．加强对社会、对群众的宣传，提高群众对化学事故预防和救援的认识，提高群众的防护意识、辨识能力及自救互救技能。
10．在制定科学、完善的危险化学品事故应急预案的同时，也必须加快建立应急救援体系，增强全市防范和处置各类重大危险化学品事故的能力。
从业单位层面：
1．属于重大危险源的单位要尽快建立和完善安全管理制度，应依法强制配备注册安全主任和安全生产监管人员，制定操作规程，加强日常管理，确保安全生产。
2．重大危险源应加强对安全负责人员的监督，增强其责任意识，管理层应发挥切实有效的防制职能。
3．重大危险源应制定和完善适合本单位现状和特点的安全操作和防护规程，使全体职工有章可循，有规可依。
4．经常、定期地检查和监督安全操作和防护规程的落实情况。
5．应组织职工开展经常性的安全知识宣传和健康教育活动。
6．重大危险源都应配备专业技术人员，着力培养本单位的专业人员。
个人层面
1．个人有义务积极配合政府部门或企业、单位落实安全政策和工作。
2．严格遵守安全操作规程，杜绝盲目的个人行为。
3．增强个人防护意识，不断充实安全预防和救护知识。
4．明确区分自身的义务和权利，在自律的前提下对错误的违章指挥予以坚决的拒绝。
With the rapid development of chemical industry all over the world,the chemical products have been commonly used in the daily life of humanbeing, substantially contributing to the material civilization of humansociety. However, it has to be noted that the scale and frequency ofchemical accidents has been increasingly disturbing with the developmentof chemical industry and its promotion to other industries. Catastrophesfrom sudden city chemical accidents that shock the international societylike Bhopal event in India have occupied certain percentage of globalsudden events. Averagely, more than 200 cases of such sudden chemicalaccidents occur yearly with increasing scale and ascending frequency,which bring about potential threats to human life safety and natrualecological balance. The city chemical accidents with such catastrophicoutcomes thus have been aroused heated discussion all over the world.Additionally, it also has to be thought highly of that terrorists, extremistsand underworld societies from home or abroad create the chemicalterroristic attacks through distruction of chemical installations based ontheir political or individual intentions.
The establishment of preliminary system for chemical accident emergency rescue, therefore, is an improtant work involving the nationalsecurity, social stability and people's health, which constitutes animperative sociological research for modernized city construction. It hasbeen pointed out that the accelerating industrialization is the major causefor the increasingly frequent chemical accidents. During the decade of1970s, there was a saying of "burning US", followed by the saying of"burning Russia", while China, nowadays, begins to step into the phase ofhighly frequent chemical accidents with characteristics of frequent,extensive, various, and difficult to rescue. Since the terroristic attack of"9.11" to the US and the following hostage event in Russia, the topic ofhow to scientifically cope sudden accidents to secure the political,economical and social safety and stability of our country has attractedfocused concern by both the government and the public.
In our country and Guandong province, there has extensive potentialrisks of sudden chemical accidents, and their occasional occurrence hascaused severely negative outcomes, such as the explosion of Qingshuihehazard chemicals warehouse, Shenzhen on Aug.5, 1993 with the directeconomical loss of 250 million Chinese Yuan including 15 deaths, morethan 800 injuries and the building destruction in size of 39,000 squaremeters; the poison casting case in Tangshan, Nanjing on Sep.14, 2002 with300 cases of intoxication and 42 deaths during short-term period; the gaswell accident in Gaoqiao Town of Kaixian, Chongqing on Dec.23, 2003with 243 deaths and more than 41,000 residents within 5 kilometers aroundthe accident spot being evacuated; the chlorine leaking accident inTianyuan Chemical Plant, Chongqing with 9 deaths and 150,000 personsbeing evacuated; the explosion accident in Shuangben plant, Jilin Petrolium & chemical Corporation of Sinopec, causing large amount of Benzolcontamitants flowing into the water system of Songhua River, which notonly disturbed the daily life of the residents living in its drainage basin, butalso negatively affected the international image of our country.
Guangzhou city is one of the cities with large amounts of andextensive hazard chemicals. There are many chemical enterprises involvingbusinesses of hazard chemicals, which has been up to thousands ofenterprises involving businesses of their manufacture, management, storage,transportation, application and discarding. Only in the year of 2003, 300million tons of hazard chemicals were bought or sold in Guangzhou.Therefore, the establishment of a system from top to bottom for chemicalaccident emergency rescue has been imperative in order to prevent theoccurrence of various chemical accidents, decrease casualties and financiallosses and meet the demands of anti-terrorism.
Since the issue and enforcement of several formal documentations asNational Regulations on Public Health Emergency Rescue, GuangzhouPreliminary Plan of Public Health Emergency Rescue and GuangzhouPreliminary Plan of Chemical Accident Emergency Rescue, Guangzhou hasgained progresses in terms of legal system construction, socializedadministration, development of preventing ability and infrastructureconstruction for quick prevention of and dealing with the sudden chemicalaccidents in case of their occurrence, which play an important role insecuring the safety of national assets and people life as well as thesucceeding of socialistic modernization. However, clearmindedness is alsoneeded because the prevention and control ability of sudden chemicalaccidents still lags behind the the overall economical construction and social development. The causes of sudden chemical accidents are mainly 1)the increased risk of sudden chemical accidents due to the rapiddevelopment of petrolium & chemical industry and chemical engineeringindustry, 2) the inharmonious developments of city planning and petrolium& chemical industry render the minor chemical accidents with severeoutcomes because of the mixture of living quarter and factory quarter, 3)the increased volume of hazard chemical transportation and the spreadinggas stations, 4) the large amouts of and extensive major hazard installationswith no complete monitoring system, and 5) large amounts of unitsinvolving the businesses of hazard chemicals that increase the risk andaccident frequency.
Based on these facts, a general investigation was conducted in theunits and enterprises engaged in the businesses of hazard chemicals toestablish a database of hazard chemicals in Guangzhou city. The units andenterprises engaging in the major hazard installations were screened andlisted. The properties, classification and distribution of these major hazardinstallations were analyzed and their safety status and accident risk wereevaluated based on the specific neatening work on hazard chemicals byGuangzhou supervision bureau for safe manufacture and Guangzhou policefire fighting bureau, the national standards for identification of majorhazard installations (GB 18218-2000), Regulations on Safety Supervision ofHazard Chemicals and Regulations on Safe Manufacture Certificate. Thestrategies for the prevention of sudden chemical accidents as well as therescue of chemical accidents emergency were proposed with an intention toprovide technical basis for the key monitoring of safe manufacture, theaccomplishment of precautious and predicting techniques and the establishment of an emergency rescue system.
The results of the investigation showed that there were 3872 units orenterprises engaging in the hazard chemical business and the populationinvolving in the business was up to more than 800 thousand, in that 261units or enterprises have major hazard installations according to the relatedstandards including 36% major hazard installations at the work site and64% major hazard installations at the storage site. The major hazardchemical in Guangzhou was toxic substances and poisonous gases includingcompressed gas and liquified gas. Besides, there were also quite muchflammable liquid, flammable solid, spontaneously combustible, and contactwater emit flammable gases, oxidizers, organic peroxide and corrosives. Inthe major hazard chemicals of toxic substances and poisonous gases, therewere 22 hazard installations of ClassⅠ, 15 hazard installations of ClassⅡ,34 hazard installations of ClassⅢand 25 hazard installations of ClassⅣ.The toxic substances and poisonous gases of lower hazard classes (ClassⅢand ClassⅣ) which occupied 35.6 percent have the properties of beingreactive. There were about 1/3 units or enterprises with major hazardinstallations being within 500 m from the residential areas with relativelydense population. In each regions and cities subordinate to Guangzhou city,there were units or enterprises being possible to directly pollute the waterresources of Pearl River. Only 68% units or enterprises with major hazardinstallations had established the preliminary plan for emergency rescue.There was still 10% major hazard installations of toxic substances with nocorresponding preliminary plan for emergency rescue. Meanwhile, thepreliminary plan for emergency rescue lacked such pertinency and regularexercises that it was only empty words although there was preliminary plan for emergency rescue for partial major hazard installations. The resultsindicate that the potential occurrence of city chemical catastrophicaccidents is high, and the suburban areas are the susceptible areas to hazardchemical accidents demanding key preventive measures. Once majorchemical accidents occur, the affected area is extensive and the negativelyaffected population is large, which needs to be evacuated. In the case ofmajor hazard chemical accident, individuals may possibly be poisoned andmay be at risks of major casualty, meanwhile, the accidents from majorhazard installations may also possibly pollute the Pearl River. Additionally,the prevention of leaking accidents from major hazard installation is ourmajor responsibily due to the dominating major hazard installations at thestorage site in Guangzhou city.
According to the results from identification and evaluation of majorhazard installations, the preventive strategies are proposed in this paper interms of government, units or enterprises engaging in hazard chemicalsbusinesses and individuals with an intention to provide feasible scheme forspecific decision-making.
For the governments
1. The governments of all levels and all the related sections should targetthe realities to formulate the effective administration regulations and toreinforce the supervision of the specifications according to theadministrative responsibilities of the respective sections.
2. Certain amount of funds should be devoted to establish accidentpreventing and rescuing institutions with the community and residentialpopulation near major hazard installations as one unit to fully exert theactivity and initiative of the masses. Additionally, it is necessary for the governments to set up key projects for the scientific researches of thepreventive and coping strategies for catastrophic chemical accidents and toenhance the scientific researches on the new orientations andcharacteristics of catastrophic chemical accidents.
3. The detailed facts on the hazard chemicals in Guangzhou city should beinvestigated to establish the information system for safety administration ofthe hazard chemicals in Guangzhou.
4. The further evaluation and approval of units or enterprises engaging inmanufacture, storage and management with major hazard installationsshould be exellently finished.
5. The key areas and key units or enterprises with major hazardinstallations whose accidents may possibly have extensive social effects,severe casualties and great economical losses should be stressed forprevention. At the same time, the dispersely and frequently happenedlocalized catastrophic accidents should also be attended.
6. The city planning should be conducted according to the principle of"maximal distance" to separate the major hazard installations from theresidential areas and building groups.
7. The functional sections of police, fire fighting, safety supervision,quality inspection, environmental protection and industry & businessadministration should formulate the corresponding regulations on lawenforcement to intensify the inspections on major hazard installations.
8. The preparation of the preliminary plan for emergency rescue, thepreparation of the equipments and supplies for emergency rescue and thepreparation of the professional team for emergency rescue should bereinforced.
9. The education of societies and masses should be intensified to increasethe masses' knowledge about the prevention of chemical accidents and theiremergency rescue to enhance their awareness on the accident preventionand self protection as well as to increase their ability of identification andto improve their skills on self rescue and buddy aid.
10. While the scientific and complete preliminary plan for chemicalaccidents emergency rescue is formualted, the establishement of a systemfor its emergency rescue should be accelerated to improve the abilities ofGuangzhou for preventing and coping major chemical accidents.
For the units and enterprises engaging in hazard chemical businesses
1. The units and cntcrprises with major hazard installations shouldestablish and complctc the regualtions on safety administration. Theregistcred safety dircctor and the supervisor for safe manufacturc should bcimperatively employed to formulate the operational procedures, torcinforcc the daily administration and to sccure the safe manufacture.
2. The safcty functionary of major hazard installations should bcsupervised to cnhance his/her awarencss on rcsponsibilities for theeffective cxertion of his/her dutie on prcvcntion and administration.
3. The safe operational proccdures and preventive measurcs should beformulated and complctcd targeting thc facts and charactcristics of theunits or cnterprises with major hazard installations.
4. The fulfillment of safcty operational proccdures and prcvcntivc measuresshould be frequently and regularly inspcctcd and supervised.
5. The cmployccs should be rcgularly cducatcd to increase thcir knowlcdgcon safety and hcalth.
6. The professionals should bc employcd for the major hazard installations and the technicians of the units or enterprises should have the priorities fortraining.
For the individuals
1. The individuals have responsibilities to cooperate with the governments,enterprises and units to fulfill the safety policies and works.
2. The safety operational procedures should be strictly followed. Theeyeless individual behaviors should be rejected.
3. The awareness of individual protections should be increased and theknowledge on the prevention and rescue should be continuouslyreplenished.
4. The responsibilities and rights should be distinctly differentiated. Thewrong and regulation-violated orders should be firmly refused based on theself-discipline.
突发化学事故应急体系的建立是关系到国家安全、社会稳定和人民健康的重要工作，是现代化城市建设的一个十分紧迫的社会课题。有专家指出工业化进程的加快，是化学事故频发的重要原因。上世纪70年代出现了“燃烧的美国”，随后有了“燃烧的俄罗斯”。现在，中国也丌始进入化学事故高发期，并呈现出事故“点多面广、类型增加、救援难度大”的新特点。自美国发生“9．11”恐怖袭击事件和俄罗斯人质事件相继发生以来，如何科学应对突发事件，保证国家政治、经济和社会安全稳定已成为我国政府和公众关注的焦点之一。
在我国、我省和我市广泛存在突发化学事故的潜在的隐患，形势异常严峻。近年来各种影响恶劣的突发化学事故时有发生：远的如1993年8月5日深圳清水河危险化学品仓库大爆炸，致15人丧生、800多人受伤，3.9万平方米建筑物毁坏，直接经济损失2.5亿元；2002年9月14日发生在南京汤山的投毒案，短时间内出现300多人中毒，42人死亡；2003年12月23日，发生在重庆市开县高桥镇的特大井喷事故，导致事发地方圆5公里内的4.1万多名群众被疏散，造成243人死亡；重庆市天原化工总厂氯气泄漏事故，致使九人失踪死亡，十五万人撤离；2005年11月中石油吉林石化公司双苯厂发生爆炸事故导致大量苯类污染物进入松花江水体，引发的重大水污染事故轰动全球，不单严重扰乱了松花江流域居民的正常生活，还在一定程度上损害了国家的声誉。
广州可谓国内涉及危险化学品数量大、范围广的城市之一，化工企业特别是涉及化学危险品的单位很多，生产、经营、贮存、运输、使用、报废等各个环节的从业单位达数千家。仅2003年一年经广州周转的危险化学品就有3000多万吨。因此为努力遏制各类化学事故的发生；事故发生后，最大限度地减少人员伤亡和财产损失；并考虑反恐怖斗争的形势要求，建立强有力的自上而下的化学事故应急救援体系势在必行。
自从国家《突发公共卫生事件应急处理条例》、《广州市突发公共卫生事件应急预案》和《广州市突发化学事故应急救援预案》等规范性文件颁布实施以来，广州市在如何快速防范、处置危险化学品突发事故发生的工作总体发展趋势较好，在法制建设、社会化管理、防范力量发展和基础设施建设等方面都取得了明显进步，为保护国家财产和人民群众生命安全、保障社会主义现代化建设的顺利进行，发挥了重要作用。但是也必须清醒认识到，目前在如何防范和控制危险化学品事故发生的工作方面仍滞后于整个经济建设和社会发展，其主要原因在于：一是石化、化工行业发展迅猛，事故突发的危险性加大；二是城市规划与石化、化工行业的快速发展不相协调，生活区与厂区混杂现象越来越突出，即使较小的化学事故也有可能引发严重的后果；三是危险化学品运输量日益增加、加油气站遍地设点；四是重大危险源数量大、分布广，未能建立完善的重大危险源监控系统；五是生产经营单位数量多，危险性大，事故多发。
基于此，本课题拟根据重大危险源辨识国家标准(GB 18218-2000)的辨识依据和方法，根据《危险化学品安全管理条例》和《安全生产许可证条例》等法律法规的相关规定，在广州市生产安全监督管理局和公安消防局联合开展的危险化学品和矿山等领域安全专项整治工作的基础上，对广州市范围内的从事危险化学品的单位和企业进行了普查，建立广州市危险化学品数据库，确定构成重大危险源的危险化学品从业单位，分析这些重大危险源的性质、种类、分布并对其安全状况和发生事故的风险进行评价，在此基础上提出广州市防范突发化学事故发生和事故发生后的应对策略，最终为广州市开展生产安全重点监控管理，建立或健全及时、准确的突发化学事故预警、预测技术和应急体系提供技术基础保障。
调查结果显示，广州市危险化学品从业单位总计有3872家，从业人口达80多万，其中达到重大危险源标准的有261家，生产场所重大危险源占36％(94家)，贮存区重大危险源生产单位占64％(167家)；构成广州市重大危险源的危险化学品主要是有毒品、压缩气体和液化气体这两类，此外，易燃液体、易燃固体、自燃物品和遇湿易燃物品、氧化剂和有机过氧化物、腐蚀品也不在少数；有毒品和有害气体构成的重大危险源中，一级危险源22个、二级危险源15个、三级危险源34个、四级危险源25个，35.6％低危险等级(三级和四级)有毒品和有毒气体具有易反应性特点；现阶段，仍有三分之一的构成重大危险源的危险化学品单位分布距离密集居民区500m以内的范围；市属各区(市)均有能对珠江水源造成直接污染威胁的危险化学品单位；仅有68％重大危险源建立了应急救援预案，即使在有毒品构成的重大危险源中仍然又约10％未建立应急救援预案。同时，部分重大危险源尽管制订了应急救援预案，但存在预案针对性不强、缺少经常性演练的情形。结果表明，广州市发生城市化学灾害事故存在的机率较高，其中城乡结合部是危险化学品事故的易发区，是防范城市化学灾害事故发生需要重点注意的地区；重大危险源一旦发生重大化学事故，波及的范围较大，受危害或是影响的人群较多，大量的人员需要疏散；重大危险源发生事故时引起人员中毒的可能性较大并且极有可能面临人员出现重大伤亡的危险；同时，重大危险源发生事故对珠江污染具有现实的可能性；另外，由于广州市重大危险源是以贮存区重大危险源为主，因此，预防重大危险源泄漏事故的发生任重道远。
根据重大危险源辨识和评价结果，从政府部门、危险化学品从业单位和个人三个层面提出了以下几方面的防范策略，以便为政府开展危险化学品专项整治决策提供切实可行性的方案。
政府层面：
1．各级政府、各有关部门要结合实际，针对本地区的情况和本部门的管理职责，制定有关配套的行之有效的管理制度，加强规范监管。
2．应投入一定的经费，组建以重大危险源附近的社区和人群为单位建立事故预防和救援机构，充分发挥群众的积极性和主动性。另外，为科学防范和处置城市灾害性化学事故，政府有必要在科学研究方面给予重点倾斜，加强对城市灾害性化学事故的新动向和特点的研究。
3．全面摸清底数，建立全市危险化学品安全管理信息系统。
4．继续做好构成重大危险源的危险化学品生产、储存和经营单位评价、审批工作。
5．对可能造成社会影响广、伤亡重、经济损失大的重点地区和重点目标加强防制，同时也要兼顾散发、频发的局限性灾害事故。
6．按照“间距最大化”原则进行城市规划，将重大危险源与居民区、建筑群进行隔离。
7．公安、消防、安全监督、质检、环境保护、工商等职能部门要制定相应的执法制度，加大对重大危险源的检查力度。
8．加强应急救援预案的演习和完善、应急救援器材和设备的储备、应急救援专业队伍的培养。
9．加强对社会、对群众的宣传，提高群众对化学事故预防和救援的认识，提高群众的防护意识、辨识能力及自救互救技能。
10．在制定科学、完善的危险化学品事故应急预案的同时，也必须加快建立应急救援体系，增强全市防范和处置各类重大危险化学品事故的能力。
从业单位层面：
1．属于重大危险源的单位要尽快建立和完善安全管理制度，应依法强制配备注册安全主任和安全生产监管人员，制定操作规程，加强日常管理，确保安全生产。
2．重大危险源应加强对安全负责人员的监督，增强其责任意识，管理层应发挥切实有效的防制职能。
3．重大危险源应制定和完善适合本单位现状和特点的安全操作和防护规程，使全体职工有章可循，有规可依。
4．经常、定期地检查和监督安全操作和防护规程的落实情况。
5．应组织职工开展经常性的安全知识宣传和健康教育活动。
6．重大危险源都应配备专业技术人员，着力培养本单位的专业人员。
个人层面
1．个人有义务积极配合政府部门或企业、单位落实安全政策和工作。
2．严格遵守安全操作规程，杜绝盲目的个人行为。
3．增强个人防护意识，不断充实安全预防和救护知识。
4．明确区分自身的义务和权利，在自律的前提下对错误的违章指挥予以坚决的拒绝。
With the rapid development of chemical industry all over the world,the chemical products have been commonly used in the daily life of humanbeing, substantially contributing to the material civilization of humansociety. However, it has to be noted that the scale and frequency ofchemical accidents has been increasingly disturbing with the developmentof chemical industry and its promotion to other industries. Catastrophesfrom sudden city chemical accidents that shock the international societylike Bhopal event in India have occupied certain percentage of globalsudden events. Averagely, more than 200 cases of such sudden chemicalaccidents occur yearly with increasing scale and ascending frequency,which bring about potential threats to human life safety and natrualecological balance. The city chemical accidents with such catastrophicoutcomes thus have been aroused heated discussion all over the world.Additionally, it also has to be thought highly of that terrorists, extremistsand underworld societies from home or abroad create the chemicalterroristic attacks through distruction of chemical installations based ontheir political or individual intentions.
The establishment of preliminary system for chemical accident emergency rescue, therefore, is an improtant work involving the nationalsecurity, social stability and people's health, which constitutes animperative sociological research for modernized city construction. It hasbeen pointed out that the accelerating industrialization is the major causefor the increasingly frequent chemical accidents. During the decade of1970s, there was a saying of "burning US", followed by the saying of"burning Russia", while China, nowadays, begins to step into the phase ofhighly frequent chemical accidents with characteristics of frequent,extensive, various, and difficult to rescue. Since the terroristic attack of"9.11" to the US and the following hostage event in Russia, the topic ofhow to scientifically cope sudden accidents to secure the political,economical and social safety and stability of our country has attractedfocused concern by both the government and the public.
In our country and Guandong province, there has extensive potentialrisks of sudden chemical accidents, and their occasional occurrence hascaused severely negative outcomes, such as the explosion of Qingshuihehazard chemicals warehouse, Shenzhen on Aug.5, 1993 with the directeconomical loss of 250 million Chinese Yuan including 15 deaths, morethan 800 injuries and the building destruction in size of 39,000 squaremeters; the poison casting case in Tangshan, Nanjing on Sep.14, 2002 with300 cases of intoxication and 42 deaths during short-term period; the gaswell accident in Gaoqiao Town of Kaixian, Chongqing on Dec.23, 2003with 243 deaths and more than 41,000 residents within 5 kilometers aroundthe accident spot being evacuated; the chlorine leaking accident inTianyuan Chemical Plant, Chongqing with 9 deaths and 150,000 personsbeing evacuated; the explosion accident in Shuangben plant, Jilin Petrolium & chemical Corporation of Sinopec, causing large amount of Benzolcontamitants flowing into the water system of Songhua River, which notonly disturbed the daily life of the residents living in its drainage basin, butalso negatively affected the international image of our country.
Guangzhou city is one of the cities with large amounts of andextensive hazard chemicals. There are many chemical enterprises involvingbusinesses of hazard chemicals, which has been up to thousands ofenterprises involving businesses of their manufacture, management, storage,transportation, application and discarding. Only in the year of 2003, 300million tons of hazard chemicals were bought or sold in Guangzhou.Therefore, the establishment of a system from top to bottom for chemicalaccident emergency rescue has been imperative in order to prevent theoccurrence of various chemical accidents, decrease casualties and financiallosses and meet the demands of anti-terrorism.
Since the issue and enforcement of several formal documentations asNational Regulations on Public Health Emergency Rescue, GuangzhouPreliminary Plan of Public Health Emergency Rescue and GuangzhouPreliminary Plan of Chemical Accident Emergency Rescue, Guangzhou hasgained progresses in terms of legal system construction, socializedadministration, development of preventing ability and infrastructureconstruction for quick prevention of and dealing with the sudden chemicalaccidents in case of their occurrence, which play an important role insecuring the safety of national assets and people life as well as thesucceeding of socialistic modernization. However, clearmindedness is alsoneeded because the prevention and control ability of sudden chemicalaccidents still lags behind the the overall economical construction and social development. The causes of sudden chemical accidents are mainly 1)the increased risk of sudden chemical accidents due to the rapiddevelopment of petrolium & chemical industry and chemical engineeringindustry, 2) the inharmonious developments of city planning and petrolium& chemical industry render the minor chemical accidents with severeoutcomes because of the mixture of living quarter and factory quarter, 3)the increased volume of hazard chemical transportation and the spreadinggas stations, 4) the large amouts of and extensive major hazard installationswith no complete monitoring system, and 5) large amounts of unitsinvolving the businesses of hazard chemicals that increase the risk andaccident frequency.
Based on these facts, a general investigation was conducted in theunits and enterprises engaged in the businesses of hazard chemicals toestablish a database of hazard chemicals in Guangzhou city. The units andenterprises engaging in the major hazard installations were screened andlisted. The properties, classification and distribution of these major hazardinstallations were analyzed and their safety status and accident risk wereevaluated based on the specific neatening work on hazard chemicals byGuangzhou supervision bureau for safe manufacture and Guangzhou policefire fighting bureau, the national standards for identification of majorhazard installations (GB 18218-2000), Regulations on Safety Supervision ofHazard Chemicals and Regulations on Safe Manufacture Certificate. Thestrategies for the prevention of sudden chemical accidents as well as therescue of chemical accidents emergency were proposed with an intention toprovide technical basis for the key monitoring of safe manufacture, theaccomplishment of precautious and predicting techniques and the establishment of an emergency rescue system.
The results of the investigation showed that there were 3872 units orenterprises engaging in the hazard chemical business and the populationinvolving in the business was up to more than 800 thousand, in that 261units or enterprises have major hazard installations according to the relatedstandards including 36% major hazard installations at the work site and64% major hazard installations at the storage site. The major hazardchemical in Guangzhou was toxic substances and poisonous gases includingcompressed gas and liquified gas. Besides, there were also quite muchflammable liquid, flammable solid, spontaneously combustible, and contactwater emit flammable gases, oxidizers, organic peroxide and corrosives. Inthe major hazard chemicals of toxic substances and poisonous gases, therewere 22 hazard installations of ClassⅠ, 15 hazard installations of ClassⅡ,34 hazard installations of ClassⅢand 25 hazard installations of ClassⅣ.The toxic substances and poisonous gases of lower hazard classes (ClassⅢand ClassⅣ) which occupied 35.6 percent have the properties of beingreactive. There were about 1/3 units or enterprises with major hazardinstallations being within 500 m from the residential areas with relativelydense population. In each regions and cities subordinate to Guangzhou city,there were units or enterprises being possible to directly pollute the waterresources of Pearl River. Only 68% units or enterprises with major hazardinstallations had established the preliminary plan for emergency rescue.There was still 10% major hazard installations of toxic substances with nocorresponding preliminary plan for emergency rescue. Meanwhile, thepreliminary plan for emergency rescue lacked such pertinency and regularexercises that it was only empty words although there was preliminary plan for emergency rescue for partial major hazard installations. The resultsindicate that the potential occurrence of city chemical catastrophicaccidents is high, and the suburban areas are the susceptible areas to hazardchemical accidents demanding key preventive measures. Once majorchemical accidents occur, the affected area is extensive and the negativelyaffected population is large, which needs to be evacuated. In the case ofmajor hazard chemical accident, individuals may possibly be poisoned andmay be at risks of major casualty, meanwhile, the accidents from majorhazard installations may also possibly pollute the Pearl River. Additionally,the prevention of leaking accidents from major hazard installation is ourmajor responsibily due to the dominating major hazard installations at thestorage site in Guangzhou city.
According to the results from identification and evaluation of majorhazard installations, the preventive strategies are proposed in this paper interms of government, units or enterprises engaging in hazard chemicalsbusinesses and individuals with an intention to provide feasible scheme forspecific decision-making.
For the governments
1. The governments of all levels and all the related sections should targetthe realities to formulate the effective administration regulations and toreinforce the supervision of the specifications according to theadministrative responsibilities of the respective sections.
2. Certain amount of funds should be devoted to establish accidentpreventing and rescuing institutions with the community and residentialpopulation near major hazard installations as one unit to fully exert theactivity and initiative of the masses. Additionally, it is necessary for the governments to set up key projects for the scientific researches of thepreventive and coping strategies for catastrophic chemical accidents and toenhance the scientific researches on the new orientations andcharacteristics of catastrophic chemical accidents.
3. The detailed facts on the hazard chemicals in Guangzhou city should beinvestigated to establish the information system for safety administration ofthe hazard chemicals in Guangzhou.
4. The further evaluation and approval of units or enterprises engaging inmanufacture, storage and management with major hazard installationsshould be exellently finished.
5. The key areas and key units or enterprises with major hazardinstallations whose accidents may possibly have extensive social effects,severe casualties and great economical losses should be stressed forprevention. At the same time, the dispersely and frequently happenedlocalized catastrophic accidents should also be attended.
6. The city planning should be conducted according to the principle of"maximal distance" to separate the major hazard installations from theresidential areas and building groups.
7. The functional sections of police, fire fighting, safety supervision,quality inspection, environmental protection and industry & businessadministration should formulate the corresponding regulations on lawenforcement to intensify the inspections on major hazard installations.
8. The preparation of the preliminary plan for emergency rescue, thepreparation of the equipments and supplies for emergency rescue and thepreparation of the professional team for emergency rescue should bereinforced.
9. The education of societies and masses should be intensified to increasethe masses' knowledge about the prevention of chemical accidents and theiremergency rescue to enhance their awareness on the accident preventionand self protection as well as to increase their ability of identification andto improve their skills on self rescue and buddy aid.
10. While the scientific and complete preliminary plan for chemicalaccidents emergency rescue is formualted, the establishement of a systemfor its emergency rescue should be accelerated to improve the abilities ofGuangzhou for preventing and coping major chemical accidents.
For the units and enterprises engaging in hazard chemical businesses
1. The units and cntcrprises with major hazard installations shouldestablish and complctc the regualtions on safety administration. Theregistcred safety dircctor and the supervisor for safe manufacturc should bcimperatively employed to formulate the operational procedures, torcinforcc the daily administration and to sccure the safe manufacture.
2. The safcty functionary of major hazard installations should bcsupervised to cnhance his/her awarencss on rcsponsibilities for theeffective cxertion of his/her dutie on prcvcntion and administration.
3. The safe operational proccdures and preventive measurcs should beformulated and complctcd targeting thc facts and charactcristics of theunits or cnterprises with major hazard installations.
4. The fulfillment of safcty operational proccdures and prcvcntivc measuresshould be frequently and regularly inspcctcd and supervised.
5. The cmployccs should be rcgularly cducatcd to increase thcir knowlcdgcon safety and hcalth.
6. The professionals should bc employcd for the major hazard installations and the technicians of the units or enterprises should have the priorities fortraining.
For the individuals
1. The individuals have responsibilities to cooperate with the governments,enterprises and units to fulfill the safety policies and works.
2. The safety operational procedures should be strictly followed. Theeyeless individual behaviors should be rejected.
3. The awareness of individual protections should be increased and theknowledge on the prevention and rescue should be continuouslyreplenished.
4. The responsibilities and rights should be distinctly differentiated. Thewrong and regulation-violated orders should be firmly refused based on theself-discipline.
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