“十三五”时期中国环境监管体制改革的形势、目标与若干建议

本文构建了包括监管的立法、组织体系、监管权力配置、监管工具与程序、问责机制、监管能力等要素在内的环境监管体制分析框架,从污染物排放趋势、国家制度建设等角度分析了"十三五"时期中国环境监管体制改革面临的挑战、目标和思路。"十三五"时期是中国生态文明建设的重要时期,完善环境监管制度是推进生态文明制度体系建设的重要内容。面对严重环境污染所带来的挑战,在此期间加快环境监管体制改革、提高环境监管有效性是切实实现治污减排的根本保证。完善环境监管体系、改进监管方式、创新监管手段是建立治污减排长效机制的基础和前提,也是完善环境治理体系的重要内容。按照市场经济条件下政府依法行政的要求,中国环境监管体制改革的目标,就是要按照合法性、独立性、透明性、可问责性、专业性和执法能力、可信性等原则建立和完善现代环境监管体制,为此必须从专门立法、组织结构、权力分配、问责机制、监管程序与工具、监管能力建设等各方面推进改革。本文提出了"十三五"时期环境监管体制改革的思路及若干建议,主要包括:加快修订环保法律法规,提高法律的可操作性,推进环境司法常态化、规范化和专门化,进一步提升环境监管法治化水平;从纵向、横向上优化环境监管组织结构,强化区域层级的监管与督查功能,强化中央层级环境监管机构对环境信息的获取能力;优化环境保护主管部门机构设置以及相关职能,建立并完善内部机构的协调机制;完善环境监管的内外部问责机制,把做实对监管者的监管机制作为优化环境监管体制的抓手;强化对监管工具的顶层设计,做实监管程序中关键环节,建立环境监管影响评估制度;加强环境监管能力建设,推进环境监管制度队伍职业化发展,保障各级环境监管机构具有充分履职的能力。环境监管体制的改革和完善,是国家治理体系和治理能力现代化的重要内容。

Prospective of and proposals for China's environmental regulation reform during 'the 13th National Five Year Plan' period

Based on a projection of key pollutants emission in the coming decade and the requirement for state building in the long rang, this paper sets out to study the challenges and objectives of China's environmental regulation system reform during the 13th National Five Year period.To facilitate that, a conceptual framework for analyzing an environmental regulatory system is outlined which is consisted of regulatory legislation, organizational structure, distribution of regulatory powers, regulatory tools, procedures of regulation, accountability mechanism and regulatory capacity development.The 13th National Five-year Plan period is an essential period of China's ecological progress, while improving the environmental regulatory system is an important part of the efforts to construct institutions for ecological civilization.Faced with grave challenges caused by serious environmental pollution, to accelerate environmental regulation reform so as to improve effectiveness of environmental regulation is therefore one of the most important tasks of ecological progress for the next five years.This regulatory reform is a required safeguard for meeting the pollution control and emission reduction targets during the 13th Five Year Plan period.Consolidating the environmental regulation system and improving the way regulation have been implemented, and creating new tools for regulation will lay the foundation for long term and effective pollution prevention and emission reduction.This will also contribute to the improvement of China's environmental governance.According to the requirements of building a rule-of-law government for an open market economy, the goal of China's environmental regulation reform is to establish and improve a modern environmental regulatory system under the principles of legitimacy, independence, transparency, accountability, professional and specialized, consistency and credibility, and adequate capacity.To achieve that goal, reforms have to be carried out in all of following areas: special legislation, organization structure of the regulatory system, distribution of regulatory power, accountability mechanism, the regulatory process, regulatory tools and regulatory capability.This paper deliberates the rationale and presents some proposals for China's environmental regulation reform during 'the 13th National Five-year Plan' period.Major reforms need to be carried out in the following key areas: ① to speed up the pace for revising of environmental protection laws and regulations by emphasizing implementation of those laws, promote normalized and routinized enforcement of environmental laws;② to optimize the vertical and horizontal structure of environmental regulation system, strengthen the supervisory role of regulatory bodies at the regional level, and to consolidate the power and improve the capability of the central government's regulatory bodies to collect and distribute environment information;③ to optimize the organizational structure and related functions of environmental regulation agencies, establish and craft the mechanism for coordinating regulatory behaviors of different agencies;④ to establish the internal and external accountability mechanism for effectively regulating environmental regulators, so as to improve the effectiveness of environmental regulatory system;⑤ to strengthen the design of regulatory tools at the top level, pay more attention to the key part of the regulatory procedure, and introduce regulatory impact analysis;⑥ to increase the effort to develop regulatory capacity, promote professionalism and skill development, and to ensure environmental regulatory agencies at all levels to have the necessary capability for effective environmental regulation.To reform of China's environmental regulatory system will significantly contribute to the development of China's overall governance system.