Improving public access to environmental information in China

Providing public access to environmental information is a relatively new approach to environmental management that can improve the quality of environmental decision-making and pollution control. China is currently exploring ways to disclose this environmental information, and has found that many aspects of providing environmental information need to be improved. In particular, work still needs to be done to strengthen the laws and regulations that govern public access to environmental information, to expand environmental disclosure among enterprises, to increase disclosure of environmental information in rural areas and enforce the collection of this information, and to investigate and manage environmental information. In this paper, we review the current situation in China, discuss the problems related to this situation, and present recommendations for improvement.     

环境信息公开有助于我国的污染防治攻坚战吗？

环境信息公开作为信息化时代环境治理的新型武器,对我国这样一个具有特殊财政体制和政治激励模式的发展中国家而言,其在污染防治攻坚战中的效果有待深入探究。本文基于城市污染源监管信息公开指数(PITI),以2008—2016年120个城市数据为样本,采用动态面板数据模型和系统GMM估计方法,实证检验了环境信息公开的污染减排效应,并重点分析了不同城市区位和城市规模下存在的异质性效应。结果表明:环境信息公开有助于污染防治,改善环境质量,还能有效缓解财政分权引致的环境污染问题。环境信息公开对污染排放的抑制作用呈现“马太效应”,对东、中、西部地区和大、中、小城市的影响均依次递减。对东、中部地区和大、中型城市,其治污效应较显著,而在西部地区和小城市尚不见效。积极推动全面环境信息公开,构建环境多元共治的长效机制,是决胜污染防治攻坚战的关键所在。     

公众参与对环境治理效果的影响——基于阶梯理论的实证研究

近年来,公众已经成为中国环境治理中不可或缺的力量,公众参与的方式和渠道也在不断拓展和丰富。为考察不同类型公众参与方式对环境治理效果的影响差异,本文基于公众参与阶梯理论,选取四类公众参与方式和四类污染物,结合我国2008—2017年30个省份数据,利用面板数据回归模型进行了实证检验。结果表明,横向比较不同类型的公众参与方式,公众环境来访对环境治理的促进效果优于环境信息公开和环保网络舆论,而政协提案、人大议案的积极效应尚不显著。纵向比较不同类型的污染物治理效果,公众参与能显著促进大气污染物的减排,对噪声和固体废物污染效果的影响次之,而在水污染治理中的作用较不理想。建议政府进一步优化健全环境信息公开机制,并重视公众层面的环境诉求,建立公众与地方生态环境部门的良好互动机制,同时鼓励公众通过新媒体渠道参与环境治理。     

我国污染源监管业务流程研究

本文通过梳理我国污染源监管的历史沿革和日益严峻的环境污染问题,理清我国现阶段在污染源整个生命周期的不同阶段由不同环境部门主导的污染源监管模式和在此模式下形成的数出多源的数据库基本情况。从时间、空间、参与者三个角度分析该模式的缺点,针对环境统计、排污申报、排污收费等多个污染源数据库进行分析比较,列表找出各自数据的特点。通过分析指出我国污染源管理存在的不足,主要体现在污染源信息管理碎片化、多元化,数据互通性差,难以实现交换和共享,导致环境部门数据可靠性不高,信息公开不全面,社会公信力缺失。究其根本原因是我国目前缺乏一整套统一的、紧密衔接的污染源协同监管模式以及顺畅的污染源全过程管理数据流程。文章从实行排污许可证一证式管理制度、污染源企业报告制度、信息公开制度、加强违法处罚力度和完善企业环境信用等方面提出政策建议。     

Risk of public disclosure in environmental farm plan programs: Characteristics and mitigating legal and policy strategies

Although various studies have shown that farmers believe there is the need for a producer-led initiative to address the environmental problems from agriculture, farmers in several Canadian provinces have been reluctant to widely participate in Environmental Farm Plan (EFP) programs. Few studies have examined the key issues associated with adopting EFP programs based on farmers’, as opposed to policy makers’, perspectives on why producers are reluctant to participate in the program. A study adapting Van Raaij’s (1981) conceptual model of the decision-making environment of the firm, and prospect theory on value functions associated with the gains and losses from risky choices can be used to characterize how farmers perceive potential risks in environmental farm planning. This framework can be used to assert that farmers are concerned about risks of public disclosure of potentially incriminating environmental information from farms because the EFP program requirements for identification and extensive documentation of farm information is perceived by farmers as facilitating the accessibility of environmental information to the public, and public investigative efforts. Although the EFP program does not explicitly generate information about the environmental conditions of a farm nor the disclosure of such information to the public, it creates the possibility of generating and divulging potentially incriminating information that the farmer may want to treat as confidential. Yet, alone, these risks of public disclosure concerns should not prevent farmers from participating in the EFP. Awareness of and participation in environmental farm planning can be increased if farmers and policy makers understand what the risks are, and how they arise. Aspects of the EFP process that have the potential to generate risk of public disclosure concerns relate to farm reviews, documentation and record keeping, and corrective action plans. There are legal and policy instruments that can offer various forms of protection and help minimize such risks, and these need to be assessed.     

大数据时代的环境信息治理变革——从信息公开到公共服务

环境信息治理发展历经三个阶段:自给自足、信息公开与公共服务。随着大数据时代的来临,当前环境信息治理处于环境信息公开向环境信息公共服务的转型与变革。这次变革的核心是以公众为本位,表现为环境信息需求的公众主导,以及环境信息供给的公众参与,包括参与环境信息的供给决策、生产过程、以及公共服务质量监督与评价等全过程。当前环境信息治理变革的目标路径重点包括5个方面,即提高公众满意度、优化环境信息公开、严格环境信息质量控制、整合环境信息资源、实现多元供给。     

STATE POLLUTION CONTROL PROGRAMS - A REVIEW1

ABSTRACT: This review of state pollution control programs suggests that states have brought imaginative thought to environmental programs. While manpower and funds have been concentrated in such traditional areas of concern as air and water quality enforcement, many states have attempted to defray the industrial costs of pollution control by increasing public waste treatment facilities, providing tax incentives for pollution control equipment and authorizing pollution control revenue bond financing.     

环境质量管理新模式:启程与挑战

污染物总量控制是我国近10年环境保护中一个重要的治理模式。但在环境容量"硬约束"、公众对良好环境质量"硬需求"的大背景下,我国的环境管理应逐步从总量控制转向以环境质量改善为核心,改善环境质量已经成为环保工作的出发点和落脚点。2015年,随着新《环境保护法》的实施和"三大战役"的先后打响,法律保障、行动计划、政府问责、质量监测等逐步就绪,环境质量管理的基础手段不断夯实。2016年,环境质量管理新模式将全面启动,建议从强化公众环境健康、实行区域流域总量控制、改革生态环保管理体制、强化市场机制、推行排污许可证制度、加强信息公开和公众参与等方面着手,全面推进环境质量管理转型与创新。     

Risk of Public Disclosure in Environmental Farm Plan Programs: Characteristics and Mitigating Legal and Policy Strategies

Although various studies have shown thatfarmers believe there is the need for a producer-ledinitiative to address the environmental problems fromagriculture, farmers in several Canadian provinceshave been reluctant to widely participate inEnvironmental Farm Plan (EFP) programs. Few studieshave examined the key issues associated with adoptingEFP programs based on farmers', as opposed to policymakers', perspectives on why producers are reluctantto participate in the program. A study adapting VanRaaij's (1981) conceptual model of the decision-makingenvironment of the firm, and prospect theory on valuefunctions associated with the gains and losses fromrisky choices can be used to characterize how farmersperceive potential risks in environmental farmplanning. This framework can be used to assert thatfarmers are concerned about risks of public disclosureof potentially incriminating environmental informationfrom farms because the EFP program requirements foridentification and extensive documentation of farminformation is perceived by farmers as facilitatingthe accessibility of environmental information to thepublic, and public investigative efforts. Although theEFP program does not explicitly generate informationabout the environmental conditions of a farm nor thedisclosure of such information to the public, itcreates the possibility of generating and divulgingpotentially incriminating information that the farmermay want to treat as confidential. Yet, alone, theserisks of public disclosure concerns should not preventfarmers from participating in the EFP. Awareness ofand participation in environmental farm planning canbe increased if farmers and policy makers understandwhat the risks are, and how they arise. Aspects of theEFP process that have the potential to generate riskof public disclosure concerns relate to farm reviews,documentation and record keeping, and correctiveaction plans. There are legal and policy instrumentsthat can offer various forms of protection and helpminimize such risks, and these need to be assessed.     

构建开放监督型工业源挥发性有机物排污申报平台的建议

工业源挥发性有机物(VOCs)以无组织排放为主,其排放量的确定和申报对现行的以有组织排放管理为主的环境管理模式提出挑战。为顺利实施VOCs排污收费、总量控制、环境影响评价、污染防治管理,切实降低环保部门收集信息、监督管理的成本,促进环境信息的真实性和有效性,我国迫切需要在国家层面结合环境信息公开和公众参与对VOCs排污申报管理模式进行研究和构建。在研究国内外排污申报平台的基础上,提出以VOCs管控为契机,整合环境统计、排污费征收等要求,建立面向企业的唯一开放监督型VOCs排污申报平台,采取数据联审制度,推行信息公开和开放型监督。通过申报功能、试算功能、监督审核功能、决策支持功能、减排技术评价功能、信息公开功能、资料和文件功能、培训和试报功能等平台八大功能的有机融合,建立公众、企业和政府相互监督、制约的三级VOCs排放监督管理新机制,为我国环境管理模式的更新升级提供参考。     

突发环境事件应对中信息公开制度的完善

近年来我国突发环境事件频发,给经济社会带来了严重影响。对突发环境事件的应对,暴露出信息公开不及时、不充分,对谣言回应不及时等不足。此外,谣言的广泛存在与传播,使得突发环境事件应对效果难以实现最大化。产生这种情况是因为突发环境事件应对中,信息公开法律规定与实践不足、信息传播不对称与集体行为等。对此,体系化的信息公开法律制度建设与完善显得尤为重要。为减少突发环境事件中因信息公开不足及谣言产生的危害,我们一方面需要通过扩大信息公开主体范围、明确信息公开程序、对象等措施强化信息公开制度建设,另一方面需要开展谣言与集体行为方面的研究,为突发环境事件的应对提供有效支撑。     

Economic assessment of the health effects related to particulate matter pollution in 111 Chinese cities by using economic burden of disease analysis

With China's rapid economic development, environmental problems have become more and more serious. Particulate air pollution is terrible in cities with large and dense population. It may lead to adverse health effects and economic costs. In this study, we calculated the health effects of pollution caused by particulate matter with aerodynamic diameters less than 10mum (PM(10)) in 111 Chinese cities in 2004 according to statistical data and epidemiological exposure-response functions. Using economic burden of disease analysis, an economic assessment of these health risks was also presented. In contrast to many previous studies that have examined individual cities, this study covered most large and medium-sized cities in China, which accounted for more than 70% gross domestic product (GDP) of China in 2004. The total economic cost caused by PM(10) pollution was estimated as approximately US$ 29,178.7 million. Mega cities such as Beijing, Shanghai, and Tianjin contribute relatively more to the total costs. The results will help policy makers in formulating more effective countermeasures and increasing public awareness to enhance environmental protection.     

上市公司环境信息披露调查研究——基于公司高管的访谈

上市公司高管态度对企业环境信息披露会产生重要影响。为充分了解企业高管如何看待上市公司环境信息披露过程中涉及的环境信息沟通、披露制度、能力建设等多方面问题，本文对涉及第一、第二和第三产业的16家上市公司高管进行访谈调研。研究发现，多数高管视社会第三方机构对企业的环境信息需求为较大的潜在风险，非强制是上市公司环境信息选择性披露的主要原因，企业重视环保投资但信息公开能力建设不足，环境信息公开对企业价值影响较弱。本文提出编写环境信息公开指南及实施细则，提升企业环境信息公开的能力建设，拓展政府和社会组织对企业环境信息公开的奖励形式等建议。     

Black and Smelly Waters: how citizen-generated transparency is addressing gaps in China’s environmental management

ABSTRACT

Information communication technologies (ICTs) generate new forums for transparency via governance-by-disclosure initiatives designed to improve environmental management and policy. Data generated by these programs are a means to empower citizens, narrowing the accountability gap between governments and people and enhancing public service. There is little empirical evidence, however, that supports the theory that citizen-generated data can be used to improve the accountability of local government officials. Citizen-led transparency efforts are emerging in China, as the country undergoes an information revolution that has brought ICTs to near ubiquity. We evaluate the transformative potential of a new ICT initiative, the ‘Black and Smelly Waters’ program, which China’s government launched to help enforce local government water remediation efforts. Many examples of citizen-generated transparency are grassroots initiatives, yet the Black and Smelly Waters program is distinct in its top-down structure. An empirical evaluation of preliminary data illuminates Black and Smelly Waters’s early successes and challenges as a means to generate transparency and accountability. We discuss these findings and propose a broad application of this new type of disclosure to reshape environmental management in China.     

当前中国环境保护公众参与存在问题与对策研究

环境问题是个全球性问题,当前我国环境污染形势十分严峻,环境污染关系到每位公众的健康,解决环境污染离不开公众参与。通过对我国当前环境保护公众参与发展情况进行分析,既看到我国环境保护公众参与进步的一面,也看到由于我国特殊的国情,公众参与存在的不足一面,从中找出影响我国公众参与发展的主要因素,提出了解决我国环境保护公众参与滞后的措施,为我国环境保护公众参与的纵深发展提供参考。     

于GRI体系的机场企业环境信息披露研究

机场作为民航运输的关键节点和重要枢纽,肩负着服务区域经济的重要使命,同时也面临环境保护与可持续发展的巨大挑战。作为公共基础设施和城市形象窗口,机场上市公司具有披露环境信息的义务与责任。在充分研究国内机场上市公司环境信息披露制度背景的基础上,本研究借鉴全球报告倡议组织（GRI）发布的《可持续发展报告指南》（第四版）及机场运营者行业补充（GRI-AOSS）构建了适用于我国机场的环境信息披露评价指标体系,并利用公开数据对国内6家机场上市公司的环境信息披露情况进行了实际测评。结果表明：我国机场环境信息披露程度较低,存在内容简单、量化不足、质量下降等问题。机场上市公司环境信息披露亟待在法律法规层面进行系统规范。建议借鉴GRI等相关国际标准及成功经验,制定适用于我国的科学可行的环境信息披露标准和制度体系。     

深圳市环境信息公开和公众参与管理实践与对策

环境信息公开和公众参与已经成为一种重要的环境管理辅助手段,深圳市立足城市之先,在立法和执法方面开展了一系列实践工作,并积累了一定的经验和教训。在研究深圳市环境信息公开和公众参与管理现状的基础上,结合实践中存在的焦点和难点问题,以提高公民环境知情权和参与权的落实水平为目标,从观念、立法、技术指引和参与形式等方面提出政策建议,为深圳市环境信息公开与公众参与管理实践提供了较好的理论和实践探索。     

控制环境与健康风险:美国环境标准制度功能借鉴

传统观念下,环境与健康分属两个不同领域,美国作为最早遭遇环境与健康问题的国家,经过多年努力,形成了建立以保障公共健康为核心的环境标准体系和环境与健康风险评估框架,实现了对环境与健康风险的有效控制。美国对环境污染物的界定主要取决于其对公共健康的影响,将污染物分为普遍及对公共健康危害较大的污染物、一些污染范围较小或对公共健康危害较小的污染物两类,且采取不同的标准制定方法。在标准制定方面,主要是将有关科学共识转化为可执行的环境标准。为了避免环境标准的不确定性带来的不利影响,建立了包括科学论证、公开透明、周期性审查等较为严格的环境标准制定程序。美国赋予环境标准制度以控制环境与健康风险的功能,并通过建立以保障公共健康为核心的环境标准体系,实现对环境与健康风险有效控制的执法路径,对解决中国目前存在的环境标准价值缺失、体系割裂、内容缺失等问题,实现环境标准的功能再造具有较强的借鉴意义。     

An alternative role for economic instruments: Sustainable finance for environmental management

Economic instruments, such as effluent fees and tradable discharge permits (TDP), have often been suggested by economists as efficient or cost-effective means to control pollution. In recent years such instruments have received increasing attention due to their growing political acceptability. Still, their use in practice has been tentative. The interest in possible application of such instruments has led to a set of studies regarding their practical potential. These studies indicate that economic instruments require substantial government involvement, entailing high administration cost; require restrictions so as to prevent significant deterioration in receptor areas; and have ambivalent effects on innovation adoption. Consequently, the efficiency gains from such instruments may be smaller than potential gains identified in earlier studies. In addition, the distributional impacts of such instruments and their possible adverse effect on market contestability reduce their attractiveness in some cases. These findings raise the question: what is the desired role of economic instruments in addressing environmental concerns? In recent years the demand for environmental services has increased dramatically. Current legislation and studies indicate that desired environmental expenditures are likely to increase. At the same time environmental programs face increasing competition from other programs for a declining pool of general revenues. One outcome of these processes has been the search for alternative sources of funds for environmental programs. Furthermore, as the competition for general revenue funds increases, the allocation of such funds for environmental programs becomes less predictable. This may endanger many long-term environmental programs that require stable funding. This article suggests that economic instruments may prove one source of dedicated funds for many environmental goals. Consequently, studies of environmental-program financing as well as studies of economic instruments may well explore the possible role of economic instruments as financing tools. Some examples of the potential of such tools for estuary cleanup programs are discussed.     

创新型社会生活噪声污染防治体系构建研究

社会生活噪声具有量大、面广、分散、影响不持续、监管难度大等特点，本文以现代化环境治理视角和社会治理视角深入剖析了我国当前社会生活噪声污染防治存在的问题，结合社会生活噪声污染防治的特殊属性及其防治的有效实践，分析2021年新修订的《中华人民共和国噪声污染防治法》中防治措施的内在联系，提出构建创新型社会生活噪声污染防治体系。该体系要求在政府主导的环境治理领域充分发挥社会各界的力量，强化社会共治，新增公众自治，将环境治理同社会治理有机结合，既强调公众参与到政府主导的环境治理工作中，又强调社会各主体多元共治和自我管理，是社会生活噪声领域公众参与的升级版。最后，本文建议以宁静区域创建为切入点，通过有关监管部门联合发布宁静区域创建指导意见；地方政府落地实施，完善管理和技术指标体系；加大宣传教育，提高德治和自治水平，以点带面逐步拓展宁静区域范围，实现创新型社会生活噪声污染防治体系的实质有效性。