京津冀地区大气污染联防联控机制实施效果及完善建议
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摘要
回顾了我国京津冀地区大气污染联防联控机制发展历程,从目标效果、制度框架、措施手段等视角系统地阐述了京津冀地区大气污染联防联控机制的实施效果.结果表明:①京津冀地区大气污染联防联控的预期目标(2017年)基本实现,并且随着控制目标逐渐严格,已由年尺度细化至日尺度.②京津冀地区大气污染联防联控顶层制度框架逐渐成熟,运行机制逐渐健全统一,重污染应急管控预案趋向于成本有效性减排策略.③当前大气污染联防联控手段基本为命令控制型,在源头控制上主要采用新源环境准入、老旧源落后产能淘汰、燃煤控制与小规模炉窑综合整治等产业结构优化和能源消耗结构调整策略;在末端控制上,逐步规范和强化大气固定源排污许可证管理制度,实施精细化的移动源、面源排放管理模式.④建议加快建立京津冀地区空气质量管理常设机构,实现大气污染联防联控的长效化;建议实施区域性大气固定源排污许可证制度,在此基础上引入经济刺激型手段,建立基于京津冀地区空气质量改善目标的大气固定源排污权交易制度,让市场机制促使污染源进一步减排和污染控制技术水平的不断提升.
This paper reviews the historical process on air pollution joint prevention and control mechanism in the Beijing-Tianjin-Hebei Region. The effect on air pollution joint prevention and control mechanism is systematically discussed,including the perspectives of target effect,institutional framework and control measures in the Beijing-Tianjin-Hebei Region. The results show that the expected objectives of air pollution joint prevention and control in the Beijing-Tianjin-Hebei Region have been basically achieved. The control objectives have become more stringent,and have be refined from the annual scale to the daily scale. The design of top framework of air pollution joint prevention and control mechanism,as well as the operation mechanism,has been improved and unified gradually in the Beijing-TianjinHebei Region. The emergency management and control plans of heavy pollution tend to depend more on cost-effective emission reduction strategy. At present,the joint control measures are basically obligated command. For the sources control,the adjustment strategies for both industrial optimization and energy consumption structure,such as new source environmental access,old source outdated production capacity elimination,coal-burning control and comprehensive renovation of small-scale kilns,are adopted. For the end control,the dischargepermitsystem of atmospheric fixed source emissions is gradually standardized and strengthened. Also the implementation of mobile source and non-point source emissions management is more refined. It is suggested to establish the permanent air quality management institutions to achieve long-term joint prevention and control in the Beijing-Tianjin-Hebei Region. The regional discharge permit system of atmospheric fixed source should be implemented,and a fixed-source emission trading system combined with the economic incentive methods should be established in the Beijing-Tianjin-Hebei Region. Thus,the controlling of sources emission and pollution control technology could be promoted by the market mechanisms.
This paper reviews the historical process on air pollution joint prevention and control mechanism in the Beijing-Tianjin-Hebei Region. The effect on air pollution joint prevention and control mechanism is systematically discussed,including the perspectives of target effect,institutional framework and control measures in the Beijing-Tianjin-Hebei Region. The results show that the expected objectives of air pollution joint prevention and control in the Beijing-Tianjin-Hebei Region have been basically achieved. The control objectives have become more stringent,and have be refined from the annual scale to the daily scale. The design of top framework of air pollution joint prevention and control mechanism,as well as the operation mechanism,has been improved and unified gradually in the Beijing-TianjinHebei Region. The emergency management and control plans of heavy pollution tend to depend more on cost-effective emission reduction strategy. At present,the joint control measures are basically obligated command. For the sources control,the adjustment strategies for both industrial optimization and energy consumption structure,such as new source environmental access,old source outdated production capacity elimination,coal-burning control and comprehensive renovation of small-scale kilns,are adopted. For the end control,the dischargepermitsystem of atmospheric fixed source emissions is gradually standardized and strengthened. Also the implementation of mobile source and non-point source emissions management is more refined. It is suggested to establish the permanent air quality management institutions to achieve long-term joint prevention and control in the Beijing-Tianjin-Hebei Region. The regional discharge permit system of atmospheric fixed source should be implemented,and a fixed-source emission trading system combined with the economic incentive methods should be established in the Beijing-Tianjin-Hebei Region. Thus,the controlling of sources emission and pollution control technology could be promoted by the market mechanisms.
引文
[1]任凤珍，何昌，蒋北辰，等．论京津冀地区大气污染联防联控的立法推进[J]．林业经济，2018(4):105-107.REN Fengzhen,HE Chang,JIANG Beichen,et al.Dissussion on the legislation promotion of air pollution joint prevention and control in Beijing-Tianjin-Hebei Region[J]. Forestry Economics,2018(4):105-107.
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[7]陆小成．京津冀大气污染联防联控机制构建研究:以五大发展理念为统领[J]．北京城市学院学报，2017(3):1-7.LU Xiaocheng.A study on the construction of the mechanisms of the joint control defense of air pollution in Beijing Tianjin and Hebei:taking the five development concepts as a guide[J]. Journal of Beijing City University,2017(3):1-7.
[8]李云燕，王立华，马靖宇，等．京津冀地区大气污染联防联控协同机制研究[J]．环境保护，2017,45(17):45-50.LI Yunyan,WANG Lihua,MA Jingyu,et al. Research on coordination mechanism of joint prevention and control of air pollution in Beijing-Tianjin-Hebei[J]. Environmental Protection,2017,45(17):45-50.
[9]康京涛．论区域大气污染联防联控的法律机制[J]．宁夏社会科学，2016(2):67-74.KANG Jingtao.On legal mechanism of regional joint prevention and control of air pollution[J]. Social Sciences in Ningxia,2016(2):67-74.
[10]胡海燕．区域大气污染联防联控法律机制的重构[J]．中国集体经济，2018(6):118-119.
[11]王金南，宁淼，孙亚梅．区域大气污染联防联控的理论与方法分析[J]．环境与可持续发展，2012,37(5):5-10.WANG Jinnan,NING Miao,SUN Yamei. Study on theory and methodology about joint prevention and control of regional air pollution[J]. Environment and Sustainable Development,2012,37(5):5-10.
[12]柴发合，云雅如，王淑兰．关于我国落实区域大气联防联控机制的深度思考[J]．环境与可持续发展，2013,38(4):5-9.CHAI Fahe,YUN Yaru,WANG Shulan.Study on implementation of joint prevention and control of regional air pollution mechanism in China[J]. Environment and Sustainable Development,2013,38(4):5-9.
[13]宁淼，孙亚梅，杨金田．国内外区域大气污染联防联控管理模式分析[J]．环境与可持续发展，2012,37(5):11-18.
[14]陈绍军．加快建立我国雾霾联防联控机制的建议[J]．前进论坛，2014(4):55-56.
[15]张欣炘，杨帆．美国、欧盟大气污染联防联控机制及启示[J]．环境保护，2015,43(13):51-53.ZHANG Xinxin,YANG Fan. The revelation based on the district combination of the atmosphere prevention and control mechanism of the United States and the European Union[J]. Environmental Protection,2015,43(13):51-53.
[16]李云燕，殷晨曦，孙桂花．京津冀大气污染治理环境执法督察机制构建[J]．环境保护，2018,46(10):46-50.LI Yunyan,YIN Chenxi,SUN Guihua. Research on environment supervision and inspection mechanism of air pollution control in Beijing-Tianjin-Hebei[J]. Environmental Protection,2018,46(10):46-50.
[17]刘峻岩．大数据时代京津冀大气污染联防联控探析[J]．中国环境管理干部学院学报，2017,27(4):19-22.LIU Junyan.Joint prevention and control of air pollution in BeijingTianjin-Hebei in the era of big data[J].Journal of EMCC,2017,27(4):19-22.
[18]屠凤娜．京津冀地区大气污染联防联控问题研究[J]．理论界，2014(10):64-67.TU Fengna. Research on the problem in Beijing Tianjin Hebei Regional atmospheric pollution control and joint[J]. Theory Horizon,2014(10):64-67.
[19]王娟，何昱．京津冀地区环境协同治理立法机制探析[J]．河北法学，2017,35(7):120-130.WANG Juan,HE Yu.Analysis on legislation mechanism of regional environmental cooperation governance in Beijing,Tianjin and Hebei[J].Hebei Law Science,2017,35(7):120-130.
[20]胡爱荣．京津冀治理环境污染联防联控机制的应用研究[J]．生态经济(中文版)，2014,30(8):177-180.HU Airong. Application research of joint prevention and control mechanism for the governance of environmental pollution in BeijingTianjin-Hebei Region[J].Ecological Economy,2014,30(8):177-180.
[2]杨丽娟，郑泽宇．我国区域大气污染治理法律责任机制探析:以均衡责任机制为进路[J]．东北大学学报(社会科学版)，2017,19(4):410-416.YANG Lijuan,ZHENG Zeyu.On the legal responsibility of regional air polution control:an approach to balanced liability mechanism[J].Journal of Northeastern University(Social Science),2017,19(4):410-416.
[3]任凤珍，高桂林，蒋北辰．京津冀大气污染法律联防联控的实施困境及对策[J]．河北地质大学学报，2016,39(2):93-97.REN Fengzhen,GAO Guilin,JIANG Beichen. Predicament and countermeasures of the joint prevention and control in law of Beijing,Tianjin&Hebei[J]. Journal of Shijiazhuang University of Economics,2016,39(2):93-97.
[4]隰香宁．京津冀地区大气污染联防联控法律机制研究[D]．保定:河北大学，2017:23-34.
[5]宫敬雅．京津冀地区大气污染联防联控法律问题研究[D]．保定:河北大学，2018:10-27.
[6]常纪文．大气污染区域联防联控应实行共同但有区别责任原则[J]．环境保护，2014,42(15):43-45.CHANG Jiwen. The principle of common but differentiated responsibilities should be implemented in joint prevention and control of air pollution[J]. Environmental Protection,2014,45(15):43-45.
[7]陆小成．京津冀大气污染联防联控机制构建研究:以五大发展理念为统领[J]．北京城市学院学报，2017(3):1-7.LU Xiaocheng.A study on the construction of the mechanisms of the joint control defense of air pollution in Beijing Tianjin and Hebei:taking the five development concepts as a guide[J]. Journal of Beijing City University,2017(3):1-7.
[8]李云燕，王立华，马靖宇，等．京津冀地区大气污染联防联控协同机制研究[J]．环境保护，2017,45(17):45-50.LI Yunyan,WANG Lihua,MA Jingyu,et al. Research on coordination mechanism of joint prevention and control of air pollution in Beijing-Tianjin-Hebei[J]. Environmental Protection,2017,45(17):45-50.
[9]康京涛．论区域大气污染联防联控的法律机制[J]．宁夏社会科学，2016(2):67-74.KANG Jingtao.On legal mechanism of regional joint prevention and control of air pollution[J]. Social Sciences in Ningxia,2016(2):67-74.
[10]胡海燕．区域大气污染联防联控法律机制的重构[J]．中国集体经济，2018(6):118-119.
[11]王金南，宁淼，孙亚梅．区域大气污染联防联控的理论与方法分析[J]．环境与可持续发展，2012,37(5):5-10.WANG Jinnan,NING Miao,SUN Yamei. Study on theory and methodology about joint prevention and control of regional air pollution[J]. Environment and Sustainable Development,2012,37(5):5-10.
[12]柴发合，云雅如，王淑兰．关于我国落实区域大气联防联控机制的深度思考[J]．环境与可持续发展，2013,38(4):5-9.CHAI Fahe,YUN Yaru,WANG Shulan.Study on implementation of joint prevention and control of regional air pollution mechanism in China[J]. Environment and Sustainable Development,2013,38(4):5-9.
[13]宁淼，孙亚梅，杨金田．国内外区域大气污染联防联控管理模式分析[J]．环境与可持续发展，2012,37(5):11-18.
[14]陈绍军．加快建立我国雾霾联防联控机制的建议[J]．前进论坛，2014(4):55-56.
[15]张欣炘，杨帆．美国、欧盟大气污染联防联控机制及启示[J]．环境保护，2015,43(13):51-53.ZHANG Xinxin,YANG Fan. The revelation based on the district combination of the atmosphere prevention and control mechanism of the United States and the European Union[J]. Environmental Protection,2015,43(13):51-53.
[16]李云燕，殷晨曦，孙桂花．京津冀大气污染治理环境执法督察机制构建[J]．环境保护，2018,46(10):46-50.LI Yunyan,YIN Chenxi,SUN Guihua. Research on environment supervision and inspection mechanism of air pollution control in Beijing-Tianjin-Hebei[J]. Environmental Protection,2018,46(10):46-50.
[17]刘峻岩．大数据时代京津冀大气污染联防联控探析[J]．中国环境管理干部学院学报，2017,27(4):19-22.LIU Junyan.Joint prevention and control of air pollution in BeijingTianjin-Hebei in the era of big data[J].Journal of EMCC,2017,27(4):19-22.
[18]屠凤娜．京津冀地区大气污染联防联控问题研究[J]．理论界，2014(10):64-67.TU Fengna. Research on the problem in Beijing Tianjin Hebei Regional atmospheric pollution control and joint[J]. Theory Horizon,2014(10):64-67.
[19]王娟，何昱．京津冀地区环境协同治理立法机制探析[J]．河北法学，2017,35(7):120-130.WANG Juan,HE Yu.Analysis on legislation mechanism of regional environmental cooperation governance in Beijing,Tianjin and Hebei[J].Hebei Law Science,2017,35(7):120-130.
[20]胡爱荣．京津冀治理环境污染联防联控机制的应用研究[J]．生态经济(中文版)，2014,30(8):177-180.HU Airong. Application research of joint prevention and control mechanism for the governance of environmental pollution in BeijingTianjin-Hebei Region[J].Ecological Economy,2014,30(8):177-180.
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