排污许可证制度在环境管理制度体系的新定位

The New Location of Discharge Permit System in Environmental Management System

自排污许可证制度推行以来已有20余年,我国法律、行政法规中虽然有一些对排污许可证制度的相关规定,但只在一部分省份作为一项试行政策执行。排污许可证制度的功能在一定意义上只是充当了排污申报登记制度和总量控制制度的补充手段,未明确排污许可证制度在污染排放管理政策中的重要地位。事实上,排污许可证制度可以通过界定明晰的产权来降低交易成本,从源头上解决由于产权不清导致的"搭便车"和外部性问题。我国有关污染防治工作的制度多是在某一个阶段发生作用,环境管理制度之间缺乏衔接与联系,针对许可证制度与其他环境管理制度施行过程中存在的问题,发挥许可证制度的优势,整合目前我国的环境管理制度,解决其他环境管理制度存在的不足。我国大气环境管理工作的目标是改善全国空气质量,提升公共健康、公共福利以及人群的生产能力,对排污许可证制度提出了新要求,不仅要在总量控制的基础上施行,更应当注重连续达标排放的要求。通过建立大气排污许可证制度,可以将我国现有的松散冗杂、成本较高、效率不高的管理政策系统地整合在一起,有利于空气质量的持续改善,降低了管理成本,提高了管理效率。

The discharge permit system has been implemented for more than 20 years in China. Although some rules ofdischarge permit system can be found in laws and administrative rules and regulations, the discharge permit system hasjust been carried out as a pilot policy in some provinces. The discharge permit system only serves as a complementarymeasure of emissions reporting, registration system and total amount control system, while its important position inpollution management policies is still unclear. In fact, it can reduce the transaction cost by defining the property rights, tosolve the problems of ＂free riders＂ and externalities in the first place. However, the pollution prevention system in Chinamostly works at a certain stage, with the lack of cohesion and connection. To problems existing in the environmentalmanagement, we should take advantage of the discharge permit system, and integrate the current environmentalmanagement system. The goal of atmospheric administration is better air quality, better public health, better publicwelfare, and better production capacity. To achieve this goal, we not only need to control total emissions, but also needto build continuously emission standards. Through the establishment of the atmospheric emission permit system, someof existing loose jumbled, high cost, inefficient management policies can be integrated together, which can benefit theimprovement of the air quality, the reduction of the management cost and the increase of the management efficiency.