环境质量改善目标下的规制工具整合研究

我国的环境规制正经历着从污染控制导向到环境质量改善导向的转型。在环境规制的发展过程中,出现了日益复杂多样的规制工具。以污染防治领域为例,规制工具箱既包含了侧重环境质量目标设定的生态环境质量标准,对污染总行为进行控制的污染物总量控制制度,也包括着眼于个体污染源的排放标准、环境影响评价和排污许可制度。这些规制工具呈现出过程控制与结果控制并存的特点,并在实体义务的设置上常有冲突之处。旨在整合各项制度的排污许可改革在程序上改变了工具原有的衔接次序,在实体义务上注重各工具要求的载明而非协调。碎片化的规制工具体系难以支撑环境质量目的的实现,应改革环境质量目标的设定,并对既有规制工具进行整合,助力规制目的的实现。

The environmental regulation in China is experiencing a reform from the pollution control-oriented model to the environment quality improvement-oriented model.Increasingly complicated and diverse regulatory instruments have emerged during the development of environmental regulation.Taking pollution control as an example,the regulatory tool box includes environmental quality standards which aim at goal setting,total pollutants emission control as an instrument of total activities control,and instruments aiming at individual polluting sources control such as emission standards,environmental impact assessment as well as emission licenses.These instruments include both process controlling and outcome controlling aspects,and there are many contradictions among them.Emission license reform which aims at integrating different instruments has changed the procedural orders.From the substantive perspective,it focuses on noting the requirements of different instruments rather than harmonizing them.The fragmented regulatory instrument system is insufficient in realizing the goal of environmental quality improvement.We need to reform the goals setting requirement and integrate the regulatory instruments to realize the environmental quality goals.