An inspiration to pollution permitting system implementation in China from the United States’ stationary source supervisory mechanism
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摘要: 在对我国排污许可制度历史分析的基础上,总结其发展特点和监管缺失的根本原因。1990年美国《清洁空气法》修正案颁布后,为了巩固许可制度的实施和运行,在1991年发布了固定源守法监测战略(CAA CMS)。在分析CAA CMS的发展、主要内容、组织保障体系、监管制度及环境效益等的基础上,借鉴其先进的监管思想,提出了保障我国许可制度实施的执法监测体系。该体系由中央政府(环境保护部)、省/地方的环境保护厅/局、企业组成。其中,环境保护部相关业务部门面向全国,根据生态文明建设发展战略的阶段任务,负责制定执法监测规章制度和相关指南;省/地方环境保护厅/局根据辖区内执法资源的配置,负责制定执法监测计划并负责落实,同时接受上级主管部门和公众的监督、监察;在为企业提供守法援助的基础上,对企业落实排污许可各项制度进行全面监管,并加大违法行为处罚力度,除对企业处罚外,还需对企业主要管理人员进行追责。Abstract: Based on an analysis of the development of pollution permitting system in China, the development charaterisitics of the permitting system and the reasons of lacking supervision and inspection were summarized. In America, US EPA issued Clean Air Act Stationary Source Compliance Monitoring Strategy (CAA CMS) in 1991 to ensure that the regulated facilities across the country are evaluated for compliance on a regular basis. The revised history, main contents, organization and guaranteeing systems, and supervision instruments of CAA CMS and the environmental benefits were analysed. Drawing on the experiences of CAA CMS, the compliance-monitoring framework in China for implementing pollution permitting system was put forward. The compliance-monitoring framework consists of central government departments, provinces/locals and enterprises. The central government departments are responsible for developing and issuing a series of rules and regulations. The provinces/locals establish and implement compliance-monitoring plans in accordance with requirements of national policies, and focus resources on those facilities that are most environmentally significant, and they are under supervision and surveillance of the superior departments and the public. The provinces/locals shall conduct inspections and evaluations of enterprises in enhancing implementation of pollution permitting system based on compliance assistance, and increase penalties of polluting enterprises. In addition to the punishment to the enterprises, it is also necessary to pursue managers the enterprises for a criminal violation.
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