统一标准是跨省重点区域大气污染治理的出路——基于邻避扩张的视角

Unified Standards:Solution to Cross-Province Key Regional Atmospheric Environmental Governance——Based on the NIMBY Expansion

实践中跨省重点区域大气环境标准存在标准项目和标准值不统一而引发的区域性大气污染和"我保护,你污染"的跨界邻避效应问题,对此,《环境保护法》和《大气污染防治法》在修法后均要求统一标准。囿于地方环境标准制定主体的特殊性和区域行政的碎片化,统一标准面临主客观阻力。区域公共品理论既是统一标准的理论基础,同时也说明了统一标准的必要性。统一重点区域大气环境标准的核心在于如何统一,并将"统一"落地,其涉及的关键要素有二:制定权的配置和实际行使。在对关键要素进行分析和论证后得出,我国可行的统一标准模式有两种:一是国务院环境保护部门统一制订标准;二是成立由环保部牵头的区域协调组织,来协调重点区域内各省级政府制订相同的大气环境标准。

Because in practice the item and the number of environmental standards in cross-pro- vince key regions are not unified, which leads cross-border NIMBY risk： the regional atmospheric pol- lution and ＂I protect, but you pollute＂, ＂Environment Protection Law＂ and ＂Atmospheric Pollution Prevention Law＂ all require to unify the regional standards. However, the particularity of the subject of local environmental standards and the regional administrative fragmentation create both subjective and objective resistances to the unification of standards. The theory of regional public goods not only acts as the theoretical foundation of unified standards, but also shows the necessity of unified stan- dards. The core of unified cross-province atmospheric environmental standards is how to unify, and to let ＂unity＂ fall to the ground. There are two key elements in the process： the granting and the execu- tion of the standard formulation power. After analyzing the key elements, we conclude that there are two feasible modes in China： one is to let the Ministry of Environmental Protection unify the stan- dards; the other is to establish regional coordination organizations lead by the ministry to coordinate the provincial governments in key regions to formulate the same atmospheric environmental standards.