以SO_2排放控制和排污权交易为例分析中国环境执政能力

Problems and Actions of China Environmental Governance: a Case Study on SO_2 Emission Control and Emission Trade

从中国SO2污染控制政策的演变,以及近年来政府大力推动的排污权交易这一污染控制经济手段试点入手,全面揭示中国环境管理中存在的问题,并从中国政策过程特点以及环境管理的政府治理结构2个角度阐释问题根源.揭示的主要环境问题包括政策的可操作性、政策间的协调性差,政策相互冲突以及政策本身缺乏科学性的论证等问题.中国自上而下的政策过程以及利用后发优势学习引用其他国家经济的政策演变特点是造成这些问题的政策原因,而中央与地方之间关系、政府部门之间、国家环境保护总局内部机构安排等方面存在的问题则是这些问题的政府治理结构根源.最后,从短期、最大可行性角度出发,以国家环境保护总局的建设为主线提出解决问题的建议,强化国家环境保护总局政策制定、协调监督以及执法监管三方面的职能与能力建设.

With more than 20 years＇ efforts, China has formulated a basket of comprehensive policies to control SO2, which involve regulations, standards, technologies, economic tools as well as administrative measures. While policies relevant to SO2 are the components of environmental policies, their evolution and defects will reveal the problems embedded in environmental policies and management. Based on the depiction of the evolution of SO2 control policies, specially focusing on pilot policy of emissions trading in China, the paper identifies the problems facing environmental protection and diagnoses the causes from Chinese policy process as well as environmental governance. The problems discussed include poor implementation, inadequate coordination, and inconsistency between policies which maybe partly arise from the experience learning process from other countries. The problems are also rooted in institutional arrangement between central and local governments, inter-ministry coordination, and inter-department coordination within SEPA. For the sake of time and maximum feasibility, recommendations are made mostly from SEPA＇ s internal capacity building and coordination, in the areas of policy making, coordinating, and monitoring, as well as inspection and enforcement.