構(gòu)建多元參與的環(huán)境治理體系——美國經(jīng)驗(yàn)與中國借鑒

1、工作論文|2016年11月|1工作論文構(gòu)建多元參與的環(huán)境治理體系——美國經(jīng)驗(yàn)與中國借鑒徐嘉憶朱源趙芮李明君著TRANSFMINGTOAPARTICIPATYENVIRONMENTALGOVERNANCESYSTEM–LEARNINGSFROMUSEXPERIENCES引用建議：徐嘉憶、朱源、趙芮、李明君.構(gòu)建多元參與的環(huán)境治理體系——美國經(jīng)驗(yàn)與中國借鑒.2016.工作報(bào)告，北京：世界資源研究所.:www.wri.publications

2、.“工作論文”包括初步的研究、分析、結(jié)果和意見。“工作論文”用于促進(jìn)討論，征求反饋，對新事物的爭論施加影響。工作論文最終可能以其他形式進(jìn)行發(fā)表，內(nèi)容可能會(huì)修改。目錄執(zhí)行摘要.........................................................................1ExecutiveSummary............................................

3、.............3研究背景...................................................................5美國大氣環(huán)境治理的經(jīng)驗(yàn)..........................................13美國水環(huán)境治理的經(jīng)驗(yàn)..............................................20美國土壤環(huán)境治理的經(jīng)驗(yàn)..........

4、................................26參考與借鑒..............................................................29參考文獻(xiàn).................................................................32注釋............................................

5、...........................34執(zhí)行摘要中國“十三五”期間的環(huán)境保護(hù)工作以“改善環(huán)境質(zhì)量”為核心，而實(shí)現(xiàn)這一目標(biāo)的重要手段，則是通過“提升環(huán)境治理能力，構(gòu)建政府、企業(yè)、社會(huì)共治的環(huán)境治理體系”，重點(diǎn)則在于打好“大氣、水、土壤污染防治三大戰(zhàn)役”。因此，十三五時(shí)期作為中國環(huán)境質(zhì)量總體改善的攻堅(jiān)階段，也是中國環(huán)境治理的重要轉(zhuǎn)型期，由政府主導(dǎo)的環(huán)境管理需要逐步轉(zhuǎn)向多元共治的模式。環(huán)境治理涉及立法、行政、司法、企業(yè)、環(huán)保

6、團(tuán)體等多元主體，各主體在環(huán)境治理中有著各自的責(zé)、權(quán)、利。明確環(huán)境治理各主體的作用和定位，特別是明確各自的責(zé)、權(quán)、利，是構(gòu)建現(xiàn)代化的環(huán)境治理體系的基礎(chǔ)。中國的環(huán)境治理面臨著突出的問題，突出體現(xiàn)在關(guān)鍵主體之間的責(zé)任劃分重疊不清、權(quán)力設(shè)置難盡其責(zé)，責(zé)權(quán)安排及其所體現(xiàn)的利益格局未能以確保環(huán)境目標(biāo)為核心。中美環(huán)境治理存在階段性差異，也存在政治體制和治理文化方面的區(qū)別，但美國環(huán)境治理的經(jīng)驗(yàn)仍有值得中國借鑒之處。本報(bào)告通過梳理環(huán)境治理體系中各主體間的

7、關(guān)系，參照美國在幾大具體環(huán)境治理議題上的實(shí)踐，重點(diǎn)分析中國環(huán)境治理面臨的癥結(jié)，為優(yōu)化中國環(huán)境治理建言獻(xiàn)策。報(bào)告具體針對的環(huán)境治理議題包括：■區(qū)域空氣污染治理上的央地關(guān)系；■水污染治理上的政企關(guān)系；構(gòu)建多元參與的環(huán)境治理體系——美國經(jīng)驗(yàn)與中國借鑒工作論文|2016年11月|3EXECUTIVESUMMARYThegoalofChina’senvironmentalprotectionefftsduringtheperiodof13thFi

8、veYearPlanisto“improvetheenvironmentalquality”currentlyfocusingonthesocalled“threebattlesofairwatersoilpollutionprevention”.Oneoftheimptantapproachestoachievethegoalisto“improvetheenvironmentalgovernancecapacitytoestabli

9、shthegovernancesystemparticipatedjointlybythegovernmententerprisessocialacts”.DuringtheperiodofChina’s13thFiveYearPlanitisthecriticalstagetoimproveoverallenvironmentalqualityinChinaaswellasanimptanttransitionstageofChina

10、’senvironmentalgovernancefromagovernmentdominatedenvironmentalmanagementtojointgovernanceparticipatedbymultipleacts.Environmentalgovernanceinvolvesmultipleactssuchaslegislativeadministrativejudicialcpateenvironmentalgrou

11、psothers.Eachacthasitsownresponsibilitypowerinterestinenvironmentalgovernance.Clearlydefiningthefunctionstherolesoftheseactsinenvironmentalgovernanceespeciallytheirrespectiveresponsibilitiespowerinterestisthebasisfbuildi

12、ngamodernenvironmentalgovernancesystem.Chinafacesnotableproblemsfitsenvironmentalgovernancefeaturingoverlappingnotclearlydefinedresponsibilitiesfvariouskeyactsaswellasflawedmateofpowertoensureresponsibilitiessufficiently

13、takenbyallacts.Besidestheinterestsofactsthearrangementftheirspowerresponsibilitiesarenotcenteredaroundachievingthegoalofenvironmentaltargets.Althoughtherearedifferencesindevelopmentstagespoliticalculturalcircumstancesbet

14、weenChinatheUnitedStatestheUSexperiencesofenvironmentalgovernancecouldbereferencetoChina.Throughidentifyingtherelationshipamongdifferentactswithintheenvironmentalgovernancesystembyreferringtoconcretecasesexperiencesofthe

15、USonseveralmajareasissuesofenvironmentalgovernancethereptanalyzedkeyproblemsinChina’senvironmentalgovernanceconcludedwithrecommendationsfChina.Thereptspecificallystudiedthefollowingrelationshipamongactsofenvironmentalgov

16、ernment:■Therelationshipbetweenthecentrallocalgovernmentinregionalairpollutioncontrol.■Therelationshipbetweenthegovernmententerprisesinwaterpollutioncontrol.■Therelationshipamongactsonresponsibilitysettingcompensationcos

17、tsharingincomplicatedenvironmentalissuessuchassoilcontamination.FeachoftheissuesthereptintroducedthecrespondingAmericancaseswithdeepanalysistheexperienceofwhichcouldbereferredbyChina’senvironmentalgovernanceduringtheperi

18、odof13thFiveYearPlan.Themainconclusionsofthereptareasfollows:■TheStateAirImplementationPlanreflectsthedelegatedcooperativerelationshipbetweentheU.S.federalstategovernments.TheFederalgovernmentisresponsiblefthedevelopment

19、ofnationalatmosphericenvironmentalpoliciesstardsofferingfinancialtechnicalsuppttolocalgovernments.Inaccdancewiththerequirementsoffederalgovernmentthestategovernmentsareresponsiblefthedaytodayadministrationofenvironmental

20、affairshavecertainflexibilityinmanagement.ThefederalgovernmentretainsthepowertoreviewapprovetheStateImplementationPlan(SIP)otherimptantmatterscouldtakemeasurestodeterpunishStateswhodidnotcomplywithfederalrequirements.Ing

21、eneraltherelationshipbetweencentrallocalgovernmentintheUnitedStatescouldbesummarizedas“l(fā)eadingbycentralgovernmentundertakingbylocalgovernmentsmainly”withcrespondingperfmanceevaluationreward&punishmentsystem.■Thesystemofw

22、aterpollutantdisgepermitintheUnitedStateshadreasonablydefinitetheboundaryofresponsibilitypowerinterestbetweengovernmententerprise.Indertooperatedeveloptheenterpriseshavetherighttoapplyfpermitbutalsoneedtobearrelevantresp

23、onsibilities.Governmentagencies(federalEnvironmentalProtectionAgencytheStateenvironmentalprotectiondepartment)havetheresponsibilitytoprotectrestethequalityofwaterenvironmenttherefehavebeengrantedtheauthitytoissuemanageth