跨界大气污染治理体系和政策措施——欧洲经验及对中国的启示

大气污染具有明显的跨界特性,跨区域联防联治机制是大气污染治理的重要手段。欧洲跨界大气污染治理具有完整的治理体系和丰富的实践经验,取得了显著成就,充分借鉴和吸收欧洲跨界大气污染治理的经验,对提高中国大气污染治理的科学性和有效性、推动解决大气污染治理难题具有重要意义。本文深入分析了欧洲跨界大气污染治理的背景、制度演化、治理体系和政策措施,结果发现,欧洲跨界大气污染治理机制是以EMEP为基础、以CLRTAP为核心、八项议定书为补充的不断扩展治理领域和政策边界的动态过程,其治理政策的制定表现出明显的阶段性特征。从科学化定量体系和制度化保障体系两个维度总结了欧洲跨界大气污染治理的主要措施,结合中国实际,对中国跨界大气污染治理提出了政策建议:(1)建立健全大气治理立法及配套执行体系,并严格落实问责;(2)尽快建立和完善跨界大气污染监测评估系统;(3)科学划分大气污染治理区域,成立跨区域组织领导机构;(4)加快研究制定符合国情的跨区域生态补偿机制。

Transboundary air pollution governance and policy measures:European experiences and its enlightenment to China

Air pollution has a significant transboundary characteristic.Cross-regional joint prevention mechanism is an important way for air pollution control.At present,China is in a period of high incidence of air pollution.Europe has formed a complete governance system in transboundary air pollution control and has accumulated a wealth of experience and achieved remarkable success.It is of great significance to improve the scientific and effective control of air pollution in China by learning and absorbing the advanced experiences of the European transboundary air pollution governance.This paper analyzes background,institutional evolution,governance system and empirical measures of European transboundary air pollution control,finding that European transboundary air pollution governance mechanism is a dynamic process based on EMEP.Using CLRTAP as the core and supplemented by eight specific protocols,the governance policies have taken on obvious stage features,by expanding governance and policy boundaries constantly.The paper summarizes the main measures of European transboundary air pollution control from the two dimensions of scientific quantitative system and institutional guarantee system,filling the gaps in the domestic systematic study on European air pollution control mechanism.Based on the profound understanding of European experiences and the reality of China,the paper puts forward some policy suggestions for China's transboundary air pollution control:①establishing the air pollution control legislation and its supporting system,and strictly implementing accountability;②establishing and improving the monitoring and evaluation system of transboundary air pollution as soon as possible;③dividing air pollution control areas scientifically,and setting up corresponding leading bodies of these areas;④ accelerating the study and formulating the mechanism of payments for environmental services (PES) according to China's conditions.